Leadership in Government Organizations

7/29/2019 Leadership in Government Organizations

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Leadership Development in Government Sector 1

Leadership Development in Government Sector

Table of Contents

Chapter 1 Introduction ..................................................................................................................... 2

1.1 Introduction ............................................................................................................................2

1.2 Leadership in Government Sector an Overview .................................................................3

1.3 Leadership Development in the United Arab Emirates (UAE) ............................................. 5

1.4 Aims and Objectives ..............................................................................................................6

1.5 Structure of the Dissertation ..................................................................................................7

Chapter 2 Literature Review ........................................................................................................8

2.1 Introduction ............................................................................................................................8

2.2 Leadership and Organizational Performance .........................................................................8

2.3 Categories of Leadership Styles ..........................................................................................12

2.3.1 Classical Leadership .....................................................................................................12

2.3.2 Transactional Leadership ..............................................................................................13

2.3.3 Transformational Leadership ........................................................................................14

2.3.4 Organic Leadership .......................................................................................................14

2.4 Leadership Development in Government Sector .................................................................15

References ......................................................................................................................................17


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Chapter 1 Introduction

1.1 Introduction

Leadership is critical for ensuring good governance whether in private sector or in government

sector. In the present day circumstance the government organizations are over managed;

nevertheless they are poorly led. In todays ever changing world, leadership issues are getting

more and more prominence in managing government departments and organizations. It is

necessary that the performance of government organizations is to be improved to meet the

interests and expectations of the citizens. Effective leadership can help government organizations

to transform policies into practice efficiently and speedily. In order to enhance the effectiveness

of the government, it is necessary that the government should undertake several structural

reforms and unless there is effective leadership these reforms cannot be materialized to make the

benefits of the reforms reach the citizens.

The public sector is under constant pressure to improve its service delivery and cooperate with

the citizens more effectively. As a result the demand for leaders and leadership to carry out the

public demands of improved service delivery and to ensure the fundamental process of change

has increased. In case the leadership within the public sector needs to be improved, it is essential

that the operating environment promotes good leadership. It is observed that the structures and

cultures of the public sector have placed a constraint on the leaders and the development of true

leadership. Although some of the features of the public sector environment need to be modified

to pave way for leadership development most of them cannot be changed to provide effective


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service to the citizens. In order to be effective the leaders in the government organizations must

be provided with sufficient freedom to lead and they need to be supported and challenged by

others working within the government agencies and departments and outside beyond their own

organizations. In essence the supply of effective leaders must be improved both within the

government sector and from outside. In this context this qualitative study analyses the need for

leadership development in government sector with specific reference to leadership development

in the context of United Arab Emirates.

1.2 Leadership in Government Sector an Overview

The Organization for Economic Cooperation and Development (OECD) explain governance as

the process in which the underlying values of a nation are institutionalized. This process usually

takes the route of being incorporated in the constitution of the respective nation. The process of

governance includes many formal elements such as separate powers, checks and balances,

transparency, accountability and responsiveness (Centre for Good Governance). However, the

citizens of the nation can realize these values in actual practice only when the actions of the

public officials are guided throughout the system by the values. It is necessary that the values

become a part of the culture. The process of governance therefore requires the able support of

leadership, which is considered as the flesh on the bones of the constitution. Leadership is at the

heart of good governance. Without leadership, the government sector cannot enhance the

managerial capacity of the public sector leaders. Of late, it has been realized that it is the quality

of leadership that determine the growth and progress of any public sector entity more than any

other factor.

As perceived by many of the practitioners and leadership theorist there has not been a

consistently agreed upon definition of leadership and the different definition available prescribe


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different sets of criteria for inclusion or exclusion in to the definition of the concept (e.g. Avolio,

2007; Bass, 1997; and Chemers, 1997). Although leadership has certain common characteristics

across all sectors, it must be adapted to be effective in the public sector. The public sector is

highly diverse in nature and the governance and size of different agencies and organizations

within public sector vary largely. The boundaries of government sector have undergone

tremendous changes in the recent years and change is a constant factor that demands the

extension of public service beyond the public sector. Nevertheless, there are certain

characteristics of public sector that distinguishes it from private sector. They are the political

context, funding arrangements and accountabilities, the lack of market competition, the pressure

to collaborate horizontally and the distinctive ethos of public service, (PIU Report, 2005). It is

essential that a vision for effective leadership must reflect all the above features. In addition, the

leadership in public sector must recognize the personal characteristics that are based mainly on

charisma; but the leadership must also reflect the ability of the leaders to motivate and bring the

best out of government servants. The leadership in government sector must also recognize the

organizational skills required to meet the complexity of modern organizations and focus on

defining and communicating mission and strategy. It should not just confine to issuing

commands to people at lower level. The leadership within the government sector further must

have the ability to work in cooperation with other organizations so that common goals can be

developed and achieved.

Leadership in government sector helps bringing changes within the agencies and departments by

opening channels of communication with the public and other stakeholders. Leadership makes it

possible to achieve integration among different departments and different levels within the

government hierarchy. With an effective leadership it becomes possible to make effective use of


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technological advances for improving performance of the public sector. Leadership facilitates the

modification of organizational processes to promote newer ways of delivering service to the

citizens. By developing individual, team and organizational capabilities to take on different

challenges, leadership brings public and private actors to achieve developmental goals swiftly

and in a sustained manner. In essence, leadership is a critical element in the process of offering

good governance in any nation.

1.3 Leadership Development in the United Arab Emirates (UAE)

The goal of this study is to provide a broad assessment of leadership development programs in

the government sector of UAE. Deciding on what counts as leadership within the context of the

United Arab Emirates is a challenging proposition. In terms of the UAE and for that matter as

applied to the whole Arab World, a majority of the practitioners use the concept of leadership

development. However the more appropriate term to describe and solve the issue would be

leader development. The so called leadership development programs within the UAE aim at

excelling the skills, abilities, knowledge and talents of the individuals as these qualities relate to

formal leadership roles. The distinction between leadership development and leader development

can be equated to the difference between social capital development and human capital

development (Day, 2000). In other words leader development focuses on the development of

intrapersonal competence and effectiveness by improving the self-awareness, self-regulation

and self-motivation of the individuals aspiring to become leaders. Leadership development is

more concerned with the development of interpersonal competence and effectiveness. This is

accomplished by improving networked relationships, commitments, trust and respect (Gardner,

1993). Thus the majority of the programs currently taking place within the UAE is leader

development programs. The purpose of the current study is to explore the possibility of


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leadership development in the government sector in the UAE so that there could be marked

improvements in the service delivery to the citizens. Identifying and suggesting effective

leadership development programs that would suit the managers and leaders of government

organizations and departments in the UAE are within the purview of this study. The challenges

facing leadership development are also covered.

1.4 Aims and Objectives

An exploration of the leadership development in the government sector in general is the chief

aim of this paper. Within this broad framework, the study seeks to accomplish the following

objectives.

1. To study the nature and scope of leadership development within the context of the government

sector of the United Arab Emirates

2. To study the main challenges faced by the leadership development programs within the UAE

government sector

3. To suggest some key recommendations for advancing effective leadership development in the

UAE government sector.

The aims and objectives described above when met will provide answers to the following

research questions.

1. What is the scope and nature of leadership development in government sector in general?

2. What counts as the leadership development in the context of the UAE?

3. What are the main challenges facing leadership development programs in the UAE

government sector?

4. What are the best possible leadership development programs that could be practiced in the

UAE government sector to improve the effectiveness of the public sector?


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1.5 Structure of the Dissertation

This dissertation is organized to have four chapters following this introductory chapter. Chapter

Two presents a review of the relevant literature to add to the existing knowledge. Chapter Three

describes the research methodology. Chapter Four presents the findings of the interviews

followed by an analysis. Chapter Five concludes the dissertation with recommendations and

implications for different stakeholders.


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Chapter 2 Literature Review

2.1 Introduction

2.2 Leadership and Organizational Performance

The concept of leaders is often subjected to several debates. School of thoughts on leadership

have emerged to further specify definition on leadership. Several theorists (Dulewicz and Higgs,

2004; Tichy and Devanna, 1990) consider leadership in the forms of Transactional,

Transformational, and Laissez faire. Leadership is critical ingredient that drives to success or

failure. Hence the importance being provided to this concept is highly evident.

Transactional leadership assumes that individuals are motivated by rewards and punishments

(Avolio, 2007). This idea is true in most organisations since employees are being adherent to

regulations are productive because of the impending rewards. Bass and Avolio (2000) stated that

transformational leaders have moral values that include honesty, responsibility, fairness, and

honouring commitments. These leaders have to be transparent in decision-making and

responsible in the outcomes of the decisions. These leaders are more inclined to set goals and

attempts to emphasise of efforts before rewards are accorded.

Business leaders have to be true to their words and value the contribution of the employees. The

idea of the leadership promotes the provision of something in exchange of another (Bass, 1985).

In the business sense, this theory has been evidently used. Most company personnel are provided

by tasks as their primary responsibility. In return, the firm gives to the employees a reasonable

amount of remuneration. Logically, transactional leaders have an eye for getting something out

of anything. This theory maintains the effectiveness of mutual relationships within firm.


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The theory of transformational leadership is considered as a dominant theory practised by

leaders. The theory assumes that the employees will follow leaders who inspire (Lipley, 2004).

This theory has prompted organisations to create mission and vision. Also, making the theory

promotes the incorporation of enthusiasm and energy in performing responsibilities. Bass (1990)

explains that transformational leaders undergo several stages of development. The first stage is

the development of a vision that serves as guide for future endeavours. The second step is to

persuade individuals to follow the vision.

Among the phases, this stage is continually manifested. The third stage is for the leaders to

formulate routes towards the goals. This is critical because the decision can either result to

success or failure. The final stage is for the leaders to remain at the forefront of the charge. This

will continue the followers to be motivated. Transformational leaders are known to be sensitive

to the needs of their members. In particular, these leaders are aware of change phases being

undergone by entities of organisations. Such recognition is critical in building a strong bond

within groups and teams.

The Laissez faire leadership is characterised as passive and reactive. OReagan et al, (2005)

noticed that these leaders avoid facing problems until worse effects are experienced. Although

these leaders are mainly timid about issues, their manner of addressing problems is considered as

meticulous. These are the leaders that rarely panic and value pressure packed situations. Despite

the insufficient aggression, some of these leaders have managed to establish strong organisations.

After five decades of collecting data on the topic, most psychologists believe that leadership

qualities are innate or genetic and thus impossible to learn (Avolio, 1999). Some researchers

have found that fundamentally personality and character one possesses may have a great

influence upon him in developing a good leadership. Their personality and character have given


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them confidence needed to lead the followers and get from them what was expected. It may

imply that the leaders are born great and they are able to take up leadership positions in any

situations regardless of social or historical context.

In a 2003 survey of more than 750 IT executives, 81% believed that that leadership can be taught

(CIO Insight, 2003). The survey also revealed that a high value is placed on leadership-

development training programs. A strong majority of the survey respondents, in addition to

believing that elements of leadership can be taught, have participated in leadership-development

programs at some point in their career. People think highly of leadership programs, even more of

them participate in less-formal methods to sharpen their leadership skills. Indeed, the numbers

provide glaring evidence that leadership is learned.

Avolio (1999) presented over a decade of research showing that leadership skills can be

developed and mastered. In their interviews with senior VPs in high-tech firms and the military

leaders, they found that both leaders were highly influenced by their very involved parents who

set challenging goals, translated failure into "how to succeed next time" and lived by high

standards of moral conduct. These helped the future leaders to appreciate diverse views (Avolio,

1999). In addition, in a series of five studies, leaders of different ages and levels of experience

from around the world participated in workshops with other members of their organisations.

In order for the development of a leader to become successful, leadership development programs

must be designed to: develop and refine certain of the teachable skills, improve the conceptual

abilities of managers, tap individuals' personal needs, interests, and self-esteem, and help

managers see and move beyond their interpersonal blocks (Maltby, 2006).

The leadership training programs now available throughout the world can be broken down into

similar emphases. Each of the leading companies providing leadership development seems to


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emphasise one of the following factors over the others: leadership skills development, conceptual

thinking, personal growth experiences, or feedback. These training mechanisms are designed to

further explain the contention that leadership is learned.

Aside from the learning experience, other aspects contribute to the claim that leadership is more

than genetics. It takes more than just inherent attributes to lead a successful organisation.

Acquiring leadership requires constant learning and development. Although some leaders have

become overnight sensations, most were successful because of valuable experiences.

In the context of studying the impact of leadership styles on BPR, it becomes important to

understand the effect of leadership on the overall organizational performance, because leadership

is viewed as one of the key driving forces in bringing improvement to the firms performance

(Zhu et al., 2005). Rowe (2001) and Avolio (1999) consider leadership as a potent source of

management development and sustained competitive advantage for improvement in firm

performance. According to Mehra et al. (2006), focusing on the effects of leadership has been

recognized as a long-standing approach to outperform the competitors. This is because of the fact

that team leaders could play a pivotal role in shaping collective norms, helping teams cope with

their environments, and coordinating collective action. Based on this leader-centered

perspective several studies have been conducted providing valuable insights into the relationship

between leadership and team performance (Guzzo & Dickson, 1996). A number of studies have

focused on exploring the strategic role of leadership in order to investigate the ways of

employing leadership paradigms and using leadership behavior to effect significant improvement

in organizational performance (e.g. Judge et al., 2002; Judge and Piccolo, 2004; Keller, 2006;

MacGrath & MacMillan, 2000; Meyer & Heppard, 2000; Purcell et al., 2004; Yukl, 2002).


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One of the important reasons for such an extended research in the area is because intangible

assets such as leadership styles, organizational culture, and skill and competence levels of

organizational members are seen key sources of strengths in those firms, which combine people

and processes for an effective improvement in organizational performance (Purcell et al., 2004).

It is evident from a discussion that previous researches have led to the expectation that leadership

paradigms, when applied appropriately will have the effect of positively influencing customer

satisfaction, staff satisfaction, and financial performance. Since these are the main objectives of

any government department, it can be concluded that leadership styles have a positive impact on

the efficiency of the public sector, which can be understood from the resulting improvement in

the organizational performance.

2.3 Categories of Leadership Styles

Past research has developed several categories of leadership styles, each having its own salience

and characteristic features. This section discusses some of the leadership styles, as understanding

the different leadership styles will enable understanding the association between leadership style

and BPR success.

2.3.1 Classical Leadership

This is the oldest form of leadership, still used in contemporary organizations (Avery, 2004).

This leadership presupposes the dominance by a pre-eminent person or an elite group of people

in leading the subordinates. This leadership style may have a coercive approach or benevolent

approach or a combination of both the approaches. There are certain limitations attached to this

type of leadership. First is the inability of the leader to command and control every action of the

followers, especially when the situations become complex in nature and beyond the capacity of

the leader. The second limitation is that this type of leadership often depends on the ideas of an


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elite few implying that only a few people among the group have the capabilities to exercise

initiative. This makes the followers to deskill themselves and idealize the leader without any

original thinking on their part. This results in the followers leaving the leader accountable to the

organizational performance, making little contribution to the organizational success (Avery,

2004).

2.3.2 Transactional Leadership

Transactional leadership follows a transaction or exchange-based approach in leading the

followers (Evans & Dermer, 1974; House & Mitchell, 1974). A transactional leader achieves his

objectives by understanding the needs and desires of the subordinates and explaining them how

their needs and preferences can be fulfilled in exchange for their contribution to the

organizational success. The transactional leader clarifies what is expected of the subordinates

and the consequences of their approach, attitude and behavior towards those expectations. By

instilling confidence in subordinates, the transactional leader is able to exert the necessary efforts

in the subordinates and achieve the desired levels of performance. Judge and Piccolo (2004)

identify contingent reward, management by exception-active, and management by exception-

passive as the three dimensions of transactional leadership. The difference between

management by exception-active and management by exception-passive lies in the timing of the

leaders intervention. Active leaders monitor follower behavior, anticipate problems, and take

corrective actions before the behavior creates serious difficulties. Passive leaders wait until the

behavior has created problems before taking action, (Howell & Avolio, 1993; Judge & Piccolo,

2004). According to Avery (2004) in the transactional leadership, although the ultimate decision-

making remains with the leader, the leader engages in different levels of consultation with the

subordinates.


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2.3.3 Transformational Leadership

Visionary or transformational, or charismatic leadership has been the subject of study during the

last thirty years (Bass, 1985, 1998; Burns, 1978; Conger & Kanungo, 1987; House, 1977).

Having added a new dimension to the leadership studies in the organizational context, visionary

leadership ensembles the emotional involvement of employees within the firm. The basic

conceptualization in visionary leadership is based on the perceived competence and ability of the

leader and his/her vision to achieve success. Subordinates are hired based on their ability to share

the vision of the leader and are expected to exhibit high level of enthusiasm and commitment to

the visionary leadership objectives. Avery (2004) finds certain limitations with visionary

leadership. According to Nadler & Tuschman, (1990), the unrealistic expectations of the

followers to result from the decisions and actions of the visionary leader may lead to

disappointment among the followers, if things do not move in the desired direction. This style

makes the subordinates depend entirely on the leader, as they believe that the leader has control

over all the issues. This leadership styles curtails the initiatives for innovations, as the followers

are reluctant to contradict the leaders views.

2.3.4 Organic Leadership

The concept of organic leadership is relatively new in the field of organizational studies.

Introduced by Drath, (2001) and developed further by Avery (2004), this leadership styles blurs

the relationship between the leader and the followers. This paradigm relies on reciprocal

actions, where team members work together in whatever roles of authority and power they may

have, not based on position power, (Hirschhom, 1997; Raelin, 2003; Rothschild & Whitt,

1986). Organizations following this leadership style have many leaders in the place of one

leader. Presence of multiple leaders enables organizations to cope with heterogeneous and

dynamic environments with the help of the extended knowledge and capabilities of different


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leaders. In the absence of a formal leader, the interactions of all organizational members with

shared vision, values and supporting culture represent a form of leadership and this situation

gives rise to emergence of leadership rather than people hired to hold leadership positions.

Kanter, (1989) identifies one downside of organic leadership in that the autonomy, freedom,

discretion and authorization enjoyed by the employees might lead to lack of control and as a

result increase uncertainty, which will hamper the growth of the organization. However, Meindl,

(1998) argues that organic leadership is about creating a form of self-control and self-

organization. It is important to understand that organic leadership is expected to generate a clear

sense of purpose and autonomy among the employees within a given context. Avery, (2004)

points out that the idea of organic leadership depends on the support of self-leading

organizational members.

2.4 Leadership Development in Government Sector

Literature consists of a debate as to whether business practices can or should be applied to the

working of the government departments and agencies. The review done by has led to the belief

that the theories of organizational function and leadership that applies to the private sector need

to be modified in a suitable manner to meet the requirements of the government sector.

Differences between government organizations and private sector organizations exist on purpose,

structure and performance. At the same time there are similarities between the two types of

organizations in the areas of (a) acquisition of resources, (b) accomplishment of selected goals,

(c) effective and efficient efforts from employees and (d) meeting the customer satisfaction. It is

necessary that these needs are satisfied for the government organizations to serve the public the

customers effectively. Only when these needs are dealt with effectively the leadership of the


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government organization will be considered effective and sustained and the organization will

remain vital over the period.

Five elements have been found to emerge from the literature that are essential to maintain the

effectiveness of government organizations They are (a) organizational vitality, (b) employee

work passion, (c) customer devotion, (d) strategic leadership and (e) operational leadership.

Only very few individuals have expertise both in leadership of complex organizations and in the

complexities of government sector. This always creates a difficult choice for the government

machinery in any nation. The dilemma is whether the government should appoint persons having

leadership skills or persons who would fit into the government departments because of their

experience. Leadership development programs need an evidence base that determines the type of

leadership which would be appropriate to the situation in question. The leadership review

literature would be able to throw light; however majority of the available literature has been

criticized as being limited and inadequate (Alimo-Metcalfe and Alban-Metcalfe, 2004; Leskiw

and Singh, 2007). The mainstream leadership research has focused on issues like traits of

leaders, leadership styles (as enumerated earlier), relations between leaders and the followers and

the contingent influences on leadership (Bass, 1990; Lewin et al., 1939; McGregor, 1960; Blake

and Mouton, 1964). Lindell & Rosenqvist (1992) found all the leadership research could be

classified into four approaches (a) the trait, (b) the behavior, (c) the situation and (d) the power

influence.


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