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Beyond Empowerment: Building a Company of Citizens

Brook Manville and Josiah Ober

Harvard Business Review,
January 2003, Special Issue, p. 48.


It is refreshing to run across and article that is intriguing. There are constantly published interesting and informative articles in academic and business publications. We use that information to learn and improve. But this article is truly intriguing. And I make that assertion even though I disagree with its premise and, as a consequence, its significance to our organizational lives.

The article begins by reminding the reader that the knowledge economy has presented organizations with many knowledge workers. How can an organization truly harness the knowledge and energy of such staff to its mission? At present, the authors argue, such workers have,

...(L)ittle or no voice in decisions about the direction of the overall company. They remain essentially disenfranchised. It should be no surprise, therefore, that many knowledge workers feel estranged from their organizations -- their outlook distrustful, their attitude cynical, their loyalty tenuous.

As a solution, the authors suggest that the democratic model which ancient Athens presents to us can help create a "working template" of a "democratic system of management." In addition to looking back at that structure through the historical prisim of Battle of Salamis (480 BC), Manville and Ober spend considerable time identifying the underlying characteristics of Athenian citizenship, or as they describe it, "the architecture of citizenship." That architecture represented a set of commonly accepted values about how the various parts of society would relate to each other. People accepted their roles. For those who were citizens, participation in decision making and the subsequent responsibilities of administration were widespread and democratic. Individuals were often chosen by lot. There was little opportunity for bureaucratic elites to form. Decision making involved many people working in flat structures that sought to resolve most questions by consensus.

The authors do a masterful job in distilling Athenian democracy to a few readable pages. The problem is that they then suggest that it can be a model to help organizations address the problem they raise at the outset: how to develop citizenship among employees of modern day organizations. Their analysis fails to consider two important issues that would suggest the model is inadequate from the get-go.

First, the authors never identify what they mean by the term "knowledge worker." Do they mean all workers? Are they suggesting that we have crossed a rubicon, that we are at the point where all employees must continually absorb more and more information? Or are they suggesting that there is a more elite strata of employees who are more educated for whom older organizational structures are no longer sufficient. This is an important consideration. Even in ancient Athens, a majority of the population were not citizens. Although citizenship was more widespread than that of other city states, the movers and shakers of Athens still relied on an infrastructure of non-citizens and slaves to perform most of the menial chores. It seems unlikely that the American business community is ready to accept a new iteration of the industrial democracy notions of the 1960's which would include all workers as "citizens," from a Ph.D. scientist to a member of the maintenance staff. Nor is it possible to imagine business expanding participation in its governance to an elite group of staff, creating an even greater sense of "class" than already exists in some industries.

But the more important problem the authors fail to confront is the difficulty in comparing the culture of Athens to the environment in which American business exists in 2003. The example of Athens -- as a city, a large organization numbering in the thousands of people -- is hardly comparable to the locations in which modern corporations of all sort presently exist. In Athens, most citizens shared the same religion, were for the most part of the same race, and were constantly involved with each other socially outside of the of political arena. Their relationships were quite diffuse: those who argued together in political realms socialized together in the non-political venues. There was every reason to believe that they developed shared values governing many parts of their lives.

Modern organizations are hardly so homogenous. Not only is there much greater diversity, but relationships are primarily contractual. People interact at work based on explicit rules identified in contracts and manuals. People who work together in Manhattan disperse every evening to as many as four states and thousands of small communities, socializing with entirely different sets of people until they return to work. It hardly seems likely that any set of process activities can -- in a large organization -- connect so many discrete dots.

Nonetheless, the article is intriguing. It caused me to think about issues that I have not confronted for several decades. Perhaps it dates me. But it is about time that we began to reconsider the concept of "democracy" and "business" in the same conversation. Even if the author's suggestion is by itself inadequate, I commend HBR for giving them an opportunity to begin an important dialogue.

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