HomeMy WebLinkAbout10 Habits of Highly Effective Councils10 HABITS OF HIGHLY-EFFECTIVE COUNCILS Carl H. Neu, Jr. Lakewood, Colorado Local government operations directly affect our daily existence and experiences and the quality of life we
perceive we have within our communities. No local government deserves, nor should its citizens tolerate, councils and elected and appointed public officials who don’t exhibit extraordinary
effectiveness, integrity and competence in leading their community’s public institutions. Thomas Cronin, a recognized authority on public policy, defines leadership as, “making things
happen that might not otherwise happen, and preventing things from happening that ordinarily might happen. It is a process of getting people together to achieve common goals and aspirations.
Leadership is a process that helps people transform intentions into positive action, visions into reality.” The quality of leadership effectiveness demonstrated by a governing body and
its ability to be highly-effective are not attributes bestowed upon it by a swearing-in cere?mony. They are the result of disciplined adherence to a set of fundamental principles and
skills that characterize highly-effective councils. Listed below are 10 “habits” of highly effective councils based upon the author’s observations of hundreds of city, county, special
service district and school district councils over the last twenty years. 1. Think and Act Strategically A governing body’s primary responsibility is not just to make policy or do its
“Roman Emperor” routine (thumbs up or thumbs down) on agenda items at public meetings. It is to determine and achieve citizens’ desires for the community’s future. Councils and their
administrative teams must accept responsibility for shaping the future of the community by expanding their mental horizons to identity and meet the challenges that must be addressed
through decisive leadership and goals for the attainment of that future. A strategic leader always comes at you from the future and takes you “back to the future” from the present. This
leadership adventure starts with vision, and evolves to defining the strategic issues that must be mastered to achieve the vision. The next step is the development of long-range goals
that address these strategic issues and which provide decision-making and budgetary focus for the successful implementation of these goals. Living from one annual budget to another,
and from one meeting to the next, condemns your community and its future to happenstance and the type of thinking that befuddles national governance and policy. For this reason, polls
show an overwhelming majority of citizens want important issues affecting their gives to be decided at the local, “home town” level. Here, they expect leadership, sound thinking, decisive
action, and accountability for results. ?Neu and Company and the Center for the Future of Local Governance, 1997,2002. All rights reserved. Winword 9/97/Word 8.0 12/02
2. Respect "shared constituency": what do the people need? No city, town, county, local government jurisdiction or non-governmental community entity is an island. The actions and decisions
of any one affects all others. But, there is an even more profound reality: most governmental jurisdictions and non-governmental entities overlap in representing and providing service
to the same people, i.e., shared constituencies. For example, any given citizen is represented and served simultaneously by the federal, state, county, and city governments plus the
school district, special purpose districts, neighborhood associations, chambers of commerce, newspaper publishers, non-profits, etc. These governments and community entities usually
see themselves as separate institutions, often with conflicting and competing agendas rather than as components contributing in a coordinated and integrated manner to seamless service
delivery meeting the citizens’ needs. Frequently, local governments and community entities operate as as special interests advocating their particular institutional needs and prerogatives
They fail to define how a public service category meeting the needs of a community of shared constituents (public safety, transportation, community development, human services, health
care, education, etc.) is defined and functions in a seamless manner with each jurisdiction and entity ensuring its appropriate contribution to the effective and efficient performance
of the whole service system. An example of a service category system is roads. A citizen expects to be able to get from point a to point b on good quality roads that make this possible.
That citizen does not want to think, nor cares about, "whose road am I on now; a federal, state, community or city road?" To that citizen "roads are roads" and it is up to all the government
entities to make the system work! The same for public safety, and all services. When a sheriff's deputy can not communicate with a city police officer due to different radio systems
and frequencies, it is a service system breakdown which doesn't meet the citizen's need for seamless effective service. Effective councils recognize they must horizontally (local government
with local government with community entities) and vertically (local government to federal and state government) coordinate and integrate to ensure citizens' needs are met. They also
recognize that collaboration and integration work best if it originates at the local government, city and county, level. It is at this level where needs are best defined and responded
to by service providers. In reality, all government, as it touches peoples daily lives and existence, is local.
3. Understand and Demonstrate the Elements of Teams and Teamwork Councils by law, exist and have authority only when their members convene as a “body” to do business. Each member is
a component of a corporate being which must speak, act, and fulfill its commitments with one voice, in a mature, effective and reliable manner. Councils are collections of diverse individuals
who come together to constitute and act as an entity, and only when operating as that entity do they exercise authority and perform in fulfillment of their purpose. This is a classic
definition of team. Carl Larson and Frank LaFasto, two preeminent authorities on teams and teamwork, define team as an entity comprised of two or more people working together to accomplish
a specific purpose that can be attained only through coordinated activity among the team members. In short, a team is an entity that exists to fulfill a specific function, or purpose,
made up of disparate, interdependent parts (individuals) who collectively achieve a capacity capacity that none of its members could demonstrate individually. Teams always have two components
that one might call their “S” components: systemicness and synergy. All teams are systemic, by definition, being made up of interdependent parts (people) who affect each other’s performance
and that of the team. Synergy is the ability to achieve an effect, when working together as a team, that is more than the sum of the team members’ individual efforts. While all teams
are systemic, relatively few are synergistic unless their members understand, master and demonstrate the fundamentals of teamwork which are: • a clear sense of purpose and goals; • clearly
define roles and relationships that unite individual talents and capacities into team performance; • integration of members who have basic technical, interpersonal, and rational decision
making competence; • a commitment to team success and quality performance; • a climate of trust, openness, and mutual respect; • clear standards of success and performance excellence;
• the support, resources and recognition to achieve success; and • principled and disciplined leadership. Highly-effective councils spend time building their sense of being a team and
their skills for productive teamwork.
4. Master Small Group Decision Making Most local government councils are classic small groups, with fewer than a dozen people. Small groups demonstrate certain skills and behaviors that
“link” their members together. They also have clearly defined processes for making decisions in fulfillment of that group’s purpose. Figure 1 summarizes the “skill sets” essential to
small group effectiveness. EFFECTIVE Small Group Decision-Making Interpersonal Skills Task Skills Rational Skills The ability to work and Knowledge to do a job Ability to deal with issues
interact with others and problems rationally •Listening to/understanding of • Knows form and role of • Selecting and prioritizing the views of others organization issues to be addressed
•Constructively confronting • Knowledge of law, policies • Analysis of issues and related and resolving differences and procedures facts • Supporting others and • Civility and manners
• Identifying objectives – showing respect for their ideas • Professional-technical outcomes • Participating actively in knowledge • Considering alternative discussions strategies/courses
of action • Taking ‘“time outs” to discuss • Assessment of obstacles and how well group members consequences interact with each other • Consensus decision making • Evaluation & follow-up
Figure 1: Effective Small Group Decision-Making 5. Have Clearly Defined Roles and Relationships Each team member’s contribution to the team’s efforts and success must be defined in terms
of roles to be assumed (functions) and how that role is to be carried out through one’s behavior (performance). Role has two elements: function, the specific responsibilities of that
role, are irrespective of incumbency, and performance, how one occupying the role is expected to behave and fulfill his/her responsibilities. Most councils, whether through charter,
statute or ordinance, have clear definitions of their function. The performance component must be defined within the team through discussion and mutual definition of those behaviors
and practices expected of the governing body’s members in the conduct of their duties and interactions.
Vince Lombardi when asked, what makes a winning team, replied, “start with the fundamentals. A player’s got to know the basics of the game and how to play his (her) position. The players
have to play as a team; not a bunch of individuals. The difference between mediocrity and greatness is the feeling the players have for each other,” (relationships). Teams talk about
and define expected roles and relationships and give constructive feedback to their members on the degree to which they are fulfilling these expectations. 6. Honor the Council-Staff
Partnership We have all heard the popular phrase, “the governing body makes policy, staff implements policy”. This is a total misconception of reality. Policy making and policy implementation
are not distinct and separate functions. Policy making-implementation is a continuum of thought and relationships that transforms ideas and abstractions (visions, policies, goals, and
plans) into defined, observable ends or outcomes (results, programs, projects, deliverable services). Council members and staff share this continuum as partners ensuring each other’s
success. Each person plays an important role in creating sound policies and ensuring their effective implementation through reliable administrative practices and performance. Figure
2 depicts this partnership and continuum. ADMIN/COUNCIL’S SPHERE MGR SPHERE •Community •Political •Factors •Values •Gratification •Staff-Implementors •Performance Issues •Values-Expertise
•Gratification GOVERNANCE-POLICY PROCESSES AD MIN A D M I N I S T R A T I O N P O L I CY B O A R D A continuum -interaction M A N A G E M E N T A D M I N I S T R A T I O N P O L I C
Y G O A L S /R E S U L T S M I S S I O N
Figure 2: Council-Staff Partnership To what degree is this partnership understood, discussed, and respected by council members? John Carver, a widely acclaimed author who writes about
councils that make a difference, describes this partnership as one in which councils define what needs are to be met and ends (outcomes) achieved. He believes that councils should allow
staff, within council-established limits, to define the means for achieving these ends. He sees a Council-staff linkage that empowers staff to do its tasks and be evaluated on the results
produced. The Council-staff partnership functions best when it is vision-driven and goals based. Councils that accept and abide by this partnership focus their energy on establishing
vision and goals, on good policy, and on empowering effective staff performance. Those that do not do this, frequently fall prey to micromanaging; that is, they will perceive a need
to become involved in, or retain approval over, staff activity and plans. A critical element and important Council task in this partnership is the evaluation of the manager or administrator,
based upon clearly defined goals, policies, and established guidelines on executive performance. 7. Allocating Governing Body Time and Energy Appropriately Time, especially to elected
officials, is a critically precious and limited, commodity. The typical council operates as a governing body, providing governance, for relatively few hours; usually less than 200 hours
annually, as compared to the typical 2400+ hours per work year for senior administrators. How councils allocate and use their time is vital to their leadership effectiveness and performance.
Councils, like teams, “play” in a number of settings or “arenas” to achieve overall, peak performance. There are four council-staff arenas, and each must be appreciated for its purpose
and contribution to a council’s effectiveness. • Goal-setting (retreats or “advances”) • Exploration and analysis (study sessions) • Disposition/legislation (regular public meetings)
• Community relations (interactions with constituencies and other agencies) Figure 3 identifies the purpose, typical setting, focus, and key characteristics of each arena. All four arenas
are essential to highly-effective governing body’s fulfillment of its leadership, policy making, goal setting, and empowering responsibilities.
ARENA GOAL-SETTING EXPLORATION & DISPOSITION-COMMUNITY ANALYSIS LEGISLATION RELATIONS Purpose • Establish vision • Explore potentials • Set goals • Direction/Priorities • -Community
• -Services • -Staff action • -Budgets • Understanding the issue(s) • Problem identification • Selecting “best options” • Building commitment • Official action • Vote on items -Resolutions
-Ordinances • Public input • Mobilization of support • Interaction with constituencycitizens • Building alliances • Outreach-liaison • Coordination with other entities Typical Setting
Retreat/Advance -informal off-site workshop Study Session -conference room Public -formal council meeting in chambers Numerous -diverse formats Focus • Future of county, city/community
• Evaluation of • -Needs • -Trends • -Strategic issues • Community desires & values • Leadership • Developing knowledge for decision making • Sorting of options • Examine consequences
• Set strategies • Ability to make competent & informed decisions • Agenda -formality • “Show”’ of of authority • Ratification/• Adoption • Political pressures • Psychological needs
• Communication • Problem solving • Collaboration -coordination • Partnership • Acting as a community Key Characteristics • Informality • Sharing of options • Open dialogue • Creative
thinking • Humor -adventure • Face-to-face/Group interaction • Council-staff’ dialogue • Questioning -testing of ideas • Information exchange • Negotiating -consensus building • No voting
• Face-to-face/group interaction • Formal meetings • Rules and procedures • Public input/involvement • High visibility • Pressure/advocacy from groups • Voting • Group interaction •
Being “outside” city hall • Responding to requests • Joint ventures • Interagency activity • Multiple interaction modes and communication techniques Figure 3: Arenas for Council-Staff
Performance Highly-effective councils will hold at least one goal-setting retreat or “advance” annually. They also will hold two study sessions monthly, usually between regularly scheduled
public hearings. Here they confer with staff and other experts on significant items under consideration requiring eventual official actions. While these study sessions are open to the
public, as observers, the public should not participate in the council-staff dialogue. Many councils shortchange this arena, pushing the opportunity for learning into the formal public
hearing, which is not designed to promote much in-depth analysis of complex issues. The arena of disposition/legislation is designed to get to a vote, not promote careful analysis of
complex issues.
The fourth arena, community relations, is becoming more important. It is rapidly transforming the role of council and how it spends its time. Communities today are more dependent upon
sophisticated alliances and partnerships among groups, public and private entities. All jurisdictions are subject to multiple, profound changes in how public officials operate as they
deal with complex multijurisdictional and regional issues and the growing popularity of citizen democracy and community renewal. Today, the community arena requires more time spent in
interactions outside city hall and puts greater time pressure on mayors and councilmembers. 8. Have Clear Rules and Procedures for Council Meetings Council meetings exist for the purpose
of doing council’s business. Literature on how to conduct effective and productive meetings specifies the need for, adherence to clearly defined rules and procedures. Many councils,
however, drift from these rules and procedures in pursuit of informality, collegiality, and “just being nice.” They let their meetings drone on with lack of focus, redundant comments
and endless discussions. Rules and procedures do not preclude citizen input, courtesy or sensitivity to public concerns and viewpoints. They respect all these elements and the necessity
to conduct business in an orderly, disciplined and productive manner. 9. Get a Valid Assessment of the Public’s Concerns and Evaluation of the Council’s Performance Elections are contests
among individuals vying to become a member of the council. They are not valid, objective assessments of the public’s feeling about the quality of council’s performance as a governing
body and about whether or not it is addressing issues effectively. Highly-effective councils seek feedback through a number of proven market research tools such as focus groups, surveys
and questionnaires. Typically, the phone calls a councilmember receives, or the comments made in public hearings, are not valid or accurate reflections of the entire community’s sentiments
about issues and council’s performance. “Market research feedback” should be ongoing and included in the annual goal setting retreat or advance. 10. Practice Continuous Personal Learning
and Development as a Leader Leaders read, attend workshops, and constantly seek information, understanding and insight. Highly-effective councils are comprised of members who honestly
know they don’t know it all. They take advantage of the myriad of opportunities to learn and perfect their skills by reading, going to state and national municipal league workshops,
and every forum that can expand their skills to lead and govern well.
A highly-effective council also learns as a council. It works closely with the manager to improve its leadership skills and the council-manager relationship. Councils should assess objectively
their performance relative to each of the 10 habits. This assessment should include the observations of council members, the manager, key department heads, and selected members of the
community who have occasion to work and interact with council. Council should then decide where gains can be made and then set up the opportunity through council workshops and other
forums to learn the skills to make these gains. Mayor, Margaret Carpenter, and City Manager, Jack Ethredge, of Thornton, Colorado, started a process with the council in 1990 incorporating
these 10 habits as the means to increase council’s leadership skills and effectiveness. The process started with council conducting a careful reexamination of the city’s mission and
the role council must assume to ensure fulfillment of that mission. Next, council, in discussions with the city manager, made a commitment to leadership innovation and excellence that
focused on long-term and strategic issues vital to the community’s future. The process involved advances, close attention to community feedback through focus groups and surveys, and
frequent self-evaluation of council’s and staff’s performance and sense of partnership. Council now holds multiple advances each year to define and validate its strategic perspective
and policy leadership. Council skill development workshops accompany these advances and focus on defined needs identified by council. Council takes specific “time-outs” to evaluate how
it functions as a team within council, with staff, and with the community. The continuous quest for effectiveness always starts with the question “Is there more we should be doing” to
improve our leadership performance and ensure a quality future for our community? Jack Ethredge observes “The entire process has helped council identify those issues essential to achieving
our community’s goals and building collaborative relationships with citizens and city staff to sustain agreement on the goals and the critical steps the entire community must take to
attain these goals. Thornton is now a community of partnerships all focusing on our vision and using our combined resources to become the city we want to be in the future. There has
been a real breakthrough achieved in the amount of creative energy that is moving Thornton forward.” Numerous other councils engage in a similar process as they hone their abilities
to deal with highly complex and rapidly changing community needs and challenges. The last, and probably most important, point: Keep your sense of humor. Governance is a serious business
dealing with the vital issues affecting our communities and the quality of life we experience within them. Humor reduces friction and stress, lets others know that we and they are human,
and brings a pause that refreshes our insight and commitment. It is essential to creating and maintaining good relationships. Every community deserves nothing less than a highly effective
council that embraces accountability for the community’s performance in creating its future and in effectively addressing, in the present, those challenges vital to attaining that future.
That is what is at stake: our communities’ future. With few exceptions, every council can be highly effective and can
provide strong leadership, but to become effective will require a good governance model and disciplined adherence to the fundamental habits of effectiveness. PM Carl Neu, Jr., is executive
vice president of Neu & Company, Lakewood, Colorado. All rights reserved to Neu & Company and the Center for the Future of Local Governance, 2002. Winword 9/97.r:4/98, Word 8.0, 12/02.
Revised 12/2002