Applying the Military Principles of Leadership

to the Municipal Environment

Submitted by Student #: 217136

Submitted to: AMCTO
2680 Skymark Ave., Suite 610
Mississauga, ON, L4W 5L6
Re: EDMM Research Report
Date: 15 April 2016

Applying the Military Principles of Leadership

to the Municipal Environment
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Executive Summary
This report examines the principles of leadership used by modern western militaries,
such as the Canadian Forces (CF), and their potential application to the municipal
environment for developing a leadership training program. It asserts that organizations
should look beyond their traditional network of similar organizations when looking for
inspiration when developing their training programs.
This report outlines the evolution of leadership doctrine in modern militaries in broad
terms focusing on the evolution from a centralized to a decentralized leadership model.
It examines the militarys shifting focus of leadership to non-combat roles to meet the
realities of peacetime and an ever-expanding administrative branch.
This report establishes a broad definition of leadership which includes the concepts of
command, management, and mentorship. It evaluates the balance that must be
maintained between these three concepts in order to maintain effective leadership in
any organization. This report goes on to outline the principles of leadership that form
the basis of many modern western militaries leadership programs. It summarizes the
intent of each principal and describes how they can be applied in a municipal
organization.
The final sections of this report highlight the similarities of a modern military operating in
a non-combat environment, with that of a municipal government. It asserts that the
lessons learned by militaries over many centuries in developing leadership programs
can be applied with potentially great benefit to the municipality. It also highlights the
importance of developing and encouraging individual leadership in all staff to the benefit
of the organization.

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Table of Contents
Executive Summary

Table of Contents

Scope & Methodology

Introduction Defining Leadership

The Origins of Modern Military Leadership

Leadership: Command, Management, and Mentorship

11

The Military Principles of Leadership

13

Municipal vs. Military Organization

18

The Training Plan

20

Conclusions

22

Bibliography

24

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You dont have to hold a position in order to be a leader.

- Henry Ford
Scope & Methodology
The intention of this report is to provide a high-level overview of leadership concepts in
the military and to highlight the potential for utilizing these techniques in a municipal
environment due to the often-overlooked similarities in the way they function. This
report examines leadership in its broadest definition that encompasses command,
management, and mentorship. It also focuses on the basic principles of leadership
used by many modern militaries that form the core of their leadership training programs.
Due to the complex nature of leadership in all organizations, this report is limited to
exploring leadership training in its most general terms and is does not provide a detailed
analysis of existing or proposed leadership training techniques or programs in any
organization.
This report would be best utilized by those individuals that are in the process of, or
considering, reviewing their municipal leadership training program. This report is
intended to highlight the extensive resources and experience that modern militaries
have in developing leadership training models, that are available to municipalities.

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"Never tell people how to do things, tell them what to do and

they will amaze you with their ingenuity." - George S. Patton
Introduction Defining Leadership
Normally when people think of military leadership they picture a classic image of a
grizzly old sergeant screaming at a group of solders who can do nothing else but stand
in formation with only the occasional yes sir! in reply. However, the reality of the
military environment is quite different. Although there will always be a requirement for
unquestioned orders in combat situations where any delay in delivering and executing
instruction could endanger lives, this is by far the exception rather than the rule.
The same could be said even in a municipal environment, such as when emergency
services are involved in a complicated and dangerous situation. However, the reality of
both modern military and municipal environments is that these high-stress situations are
the exception rather than the rule. With this in mind the military, with centuries of
experience, has developed a leadership style deeply rooted in natural leadership
tendencies.
Leadership in its most basic form is not exclusive to humans. Many animals naturally
form groups for mutual protection and support. Invariably with these groups there often
emerges a leader that makes the decisions for the group as long as the others choose
to follow. This could be as simple and short-term as a single duck in the lead position of
a large formation flying south or it could be as complex and long-term as the dominate
male in a pride of lions. As with human leadership, animal leaders are often imperfect
and potentially make poor decisions on behalf of the group. However, the benefits of
mutual protection and the efficiencies gained when hunting or scavenging food as a
group far outweigh the potential of attempting life alone.

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Leadership in any form must build on these most basic and natural tendencies. A
leader must understand that individuals tend to form groups naturally and seek
reasonable direction from others. An effective leader will recognize these desires and
build upon them rather than forcing their will upon the group. Many organizations, such
as modern militaries, have built on these concepts to create comprehensive leadership
programs that can be used in todays complex workplaces.
Most organizations realize the importance of first defining leadership before attempting
to evaluate or train their leaders. Nowhere is this more true than with modern western
militaries, such as the Canadian Forces (CF) which defines leadership as;
Leadership is the art of influencing human behavior so as to
accomplish a mission in the manner desired by the leader.
- Canadian Forces Definition of Leadership
Although this definition has evolved over time and many variations exist today, this
definition captures the essence of what leadership is. Leadership consists of two
equally important components. The first is the mission or goal either determined by the
leader or assigned to them by anther more senior person. This is the ultimate outcome
that the leader and team must work towards. The secondly equally important
component is the method in which the team will work toward the chosen outcome. This
method must be controlled by the leader to ensure all members of the team are working
effectively towards the same outcome. If either of these two components are missing,
then leadership is not present and the likelihood of the desired outcome being achieved
is significantly reduced.

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Although the mission or goal is often outside the leaders control, the method in which
the leader choses to lead the group is often left up to the individual. Many methods
exist and their descriptions and naming can vary depending on the source and their
perspective. In general terms the leadership approach will range on a scale from freerein on one end to authoritative on the other.
A free-rein leadership style is characterized by minimal input by the leader. The leader
will ensure the group is informed of the ultimate outcome, but will generally leave it up to
the group to determine the method and coordination required to work towards this goal.
This approach can be effective in situations where the group is highly trained or where
the outcome is repetitive. Otherwise this approach can easily lead to confusion,
repetition, or inaction by group members.
The opposite end of the scale is an overtly authoritative approach. This approach is
characterized by the leader maintaining complete control of the actions by the group
members. The leader will not seek feedback from the group and the leader may even
refrain from disclosing all or part of the desired outcome. Although this approach can
be useful in intense situations, it will generally lead to resentment and poor performance
by the group if used too often.
The middle of the scale is a blend of the two approaches and is often referred to as a
participatory leadership approach. This approach is characterized by the mutual
exchange of information by both the leader and the group members. This includes
detailed information on the desired outcome by the leader as well as possible methods
to achieve the goal by the group members. However the ultimate responsibility to select
the chosen method of work rests with the leader. This leadership approach is intended
to encourage group participation while ensuring control is maintained by the leader.

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Although this leadership approach is often identified as the preferred approach in

leadership programs, it is important for an effective leader to choose the appropriate
approach based on the situation at hand and remain flexible as the situation changes.
Such as beginning a project as free-rein, but moving progressively towards authoritative
as the project deadline approaches or beginning a critical project authoritatively with
untrained staff and moving towards free-rein as they become more experienced.
Leadership can further be sub-divided based on the level of responsibility of the leader
within an organization. Although anyone can exhibit the traits of a leader, even when
not in a formal leadership position, the lowest level of formal leadership is the direct
leader. These individuals make up the supervisors of the workplace and are
responsible for directly interacting with the members of their respective team. The next
level of leadership are the senior leaders. These individuals make up the managers of
the workplace and are responsible for indirectly leading large groups through the direct
interaction with their subordinate leaders. The final level of leadership are the executive
leaders. These individuals make up the directors of the workplace and are responsible
for leading the organization indirectly through the development of procedures and
policy. Although the exact delineation of the levels will vary between organizations it is
important to recognize that the expectations of the leaders at the various levels must
reflect the specific organization and individual responsibilities.

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The day the soldiers stop bringing you their problems is the
day you stopped leading them. They have either lost
confidence that you can help them or concluded that you do
not care. Either case is a failure of leadership. - Colin Powell
The Origins of Modern Military Leadership
The leadership and command style used in militaries has always been a direct result of
the military tactics used on the battlefield. From the centralized command structure that
accompanied large military formations before the twentieth century to that of the
decentralized command structure used in small unit tactics of the modern battlefield.
The origins of the Canadian military, for example, did not simply start on an arbitrary
day in history. Instead, it was a slow transition from the European model in the
nineteenth century. As a result, the early Canadian military inherited the same two
class structure used in all western militaries of the day. This system saw the separation
of the officers from the enlisted soldiers. The officers were expected to be educated
and most importantly from the upper classes of society often contributing financially to
garner a higher rank. The enlisted soldiers on the other hand were often conscripted
from the working class. They typically had little or no education and no financial
resources to influence a higher rank.
This division often led to mutual resentment between the two classes. It is well
documented that the officer class would maintain strict discipline through the threat of
brutal punishment, to the point where it is often assumed that the only reason the
enlisted class would fight was because they feared their officers more than the enemy.
Although history may overstate the true effect that harsh disciple may have had on the
average soldier, it can be said with some certainty that the average officer would be
viewed as commander and not as a leader. This centralized leadership model focused
on the executive and senior leaders and encouraged an authoritative leadership style.

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The twentieth century saw the near constant evolution of military tactics, which lead to
fundamental shifts in the command and leadership approaches used by militaries. WWI
began to see the need for decentralized command as the use of massive formations of
concentrated soldiers proved to be outdated and ineffective. This period saw the rise of
the Non-Commissioned Officer (NCO) class, previously occupied by long serving
enlisted soldiers with little authority. This group encompasses the direct leaders in the
military and due to their close working relationship with the solders tended to be less
inclined to rely on a strictly authoritative leadership style. During WWII the NCO class
proved to be invaluable to western armies that saw the advantage and necessity of
having trained leaders able to independently and directly lead small groups of soldiers.
To facilitate this, western militaries designed training specifically for leadership at these
lower rank levels and thus began the modern leadership program
With the end of major conflicts many militaries, such as Canada, entered a new phase
in the late twentieth century. With more emphasis being place on peacekeeping and
humanitarian operations, it was becoming far more common for the average soldier to
complete their entire military career without ever seeing combat or even being deployed
to a combat region. The same time frame saw the steady increase of the administrative
trades within the military. This period saw an emphasis on developing military
leadership approaches that could be equally applied to non-combat environments such
as training or administrative environments and led to the general leadership slowly
moving away from a primarily authoritative style.
This evolution has resulted in a comprehensive leadership program that is taught to all
classes of military soldiers, to the point where even seniors officers are trained to be
leaders first and commanders second. The result is a modern military that works far
more collaboratively at all rank levels to ensure a proper balance between the demands
of the mission and the needs of the soldiers.

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There is a difference between being a leader and being a

boss. Both are based on authority. A boss demands blind
obedience; a leader earns his authority through
understanding and trust. - Klaus Balkenhol
Leadership: Command, Management, and Mentorship
For the purpose of this report, the concept of Leadership is considered in its broadest
definition and shall include other concepts such as command, management, or
mentorship; rather than a narrow definition that is considered separate from these
concepts.
In order for an individual to be successful as a team leader, they must understand the
balance between Mentoring, Command, and Management. All too often organizations
place too great an emphasis on one of the three concepts and neglect the others to the
detriment of the team and organization.
Mentoring at its fundamental level it is about coaching and empowering the team
members to achieve their personal best in achieving the goal of the team as well as
their own personal goals. This approach generally uses a free-rein leadership style to
encourage individuals to develop their own solutions to problems. A leader that is
unable to mentor their subordinates will limit their potential for personal growth and
maximized productivity.
Command is the ultimate authority and responsibility that the team leader must
maintain. It most commonly manifests itself in the duty to maintain disciple through the
enforcement of strict rules set out by the organization. Command is often associated
with an authoritative leadership style, however it is often more tempered in modern
workplaces than in the past. A leader that is unable to maintain disciple and command
authority will often struggle when the poor conduct of a single team member is left
unchecked and allowed to influence the other team members.
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The final and equally important concept is Management. Management is the most
efficient and effective allocation of resources for the given goal. This includes both
physical resources as well as the proper selection of team members for each given role.
This approach is generally associated with a collaborative leadership style to allow for
effective communication, while maintaining control. A leader that is unable to properly
manage resources will see the overall productivity and moral of the team suffer.
These three terms are so fundamental to a team that it becomes difficult to describe a
team leader without using variations of one of the three terms. Unfortunately, this only
reinforces the imbalance with terms such as personal mentor, office manager, and
military commander becoming common place in modern society. With these terms
comes the assumptions that the individuals do not possess the other traits or the duty to
exercise these responsibilities associate with the other traits. Therefore, it must be
remembered that no matter what term is selected, or inherited, the three concepts must
be reinforced through balanced training.

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"The Nation that makes a great distinction between its

scholars and its warriors will have its thinking done by
cowards and its fighting done by fools." - Thucydides
The Military Principles of Leadership
The basis of leadership programs used by many modern western militaries, such as
Canada, revolves around the Principles of Leadership. These summarize the entire
leadership program into several short and concise points, which are easily referenced at
any time. Although the exact wording and number of points used varies even within
individual countries, the general concepts remain the same. The use of these points
are in recognition of the fact that the human mind will only retain a small percentage of
information that is presented and these points ensure that the core concepts are not
permitted to be overlooked or forgotten. Although the current CF leadership program
dates back to 1973, it remains as relevant now as ever thanks to constant updating.
Over the decades since its adoption, portions of it have made their way into many
corporate and private training plans through migrating personnel. However, few
recognize, or give proper credit to the true origins of many of these programs.
One example of the Canadian Forces Principles of Leadership is:
1) Achieve professional competence and pursue selfimprovement (Lead by example)
A leader that is viewed by their subordinates as either incompetent or set in their ways
will foster a deep sense of resentment that will negatively influence the productivity of
their team. An effective and hard-working leader will tend to inspire the best from their
team even with minimal direction.

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2) Clarify objectives and intent

It is far too easy for staff to misunderstand the intent of their leader, which could lead to
the duplication of work or work being performed that does not contribute to the goal. An
effective leader will ensure the team is properly informed of all pertinent information to
promote feedback and to ensure maximum productivity.
3) Solve problems; make timely decisions
Without all of the information available a leader can make poor decisions that take the
team further away from the goal or delay important decisions which restricts the teams
ability to move forward. It is only by engaging the entire team and considering all
relevant input that a leader can make the most informed decision.
4) Direct; motivate by persuasion and example and by
sharing risks and hardships
An individual is most productive when they feel engaged in and challenged by the goal,
rather than when they feel forced. Any organization deals with tasks that staff members
lament doing. Therefore it is important for a leader to ensure unliked tasks are shared
equally among staff members to prevent individuals from feeling singled out or
punished.
5) Train individuals and teams under demanding and
realistic conditions
In a municipal environment this is most applicable for emergency services, but it should
not be overlooked for all staff members. Whether it be first aid training, training to deal
with difficult people, or meeting tight deadlines it is important to keep training realistic
and interesting to ensure its effectiveness.

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6) Build teamwork and cohesion

Staff that are working towards a single goal that do not work as a cohesive team will
end up duplicating work. An effective leader will promote the cross communication
between staff and coordination of work.
7) Keep subordinates informed, explain events and decisions
Where leaders dont communicate with their team it can lead to team members not
effectively working towards the goal or even feelings of frustration. It is important for
leaders to inform the team of changes that affect the mission in a timely and efficient
manner.
8 ) Mentor, educate, and develop subordinates
A critical point that is all too often overlooked in a municipal environment. Where staff is
allowed to become stagnant in their careers their productivity will invariably suffer. An
effective leader will encourage their subordinates to achieve self-improvement through
many different means.
9) Treat subordinates fairly; respond to their concerns,
represent their interests
The golden rule of treat others as you would want to be treated taught at an early age
is still applicable for municipal leaders. A leader that is seen as treating their staff
poorly will not receive their support and will ultimately have a group that cannot function
as an effective team. It is important for leaders to not only listen to their teams concerns
but to also show them that real action is being taken.

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10) Maintain situational awareness; seek information; keep

current
Although the term situational awareness is traditionally used in combat situations it can
be equally applied to any complex and rapidly changing situation in a municipal
environment. In these types of situations, it is critically important to ensure leaders both
share information and seek information with others. It is too tempting for an individual to
get tunnel vision focusing on solving a single problem, while leaving others out of the
process. However, in the majority of situations the small amount of time invested in
communication the problem and information to others will be repaid with a quicker and
more comprehensive solution thanks to the collective input of the team.
11) Learn from experience and those who have experience
Everyone is taught from an early age to learn from their mistakes, but a skilled leader
will share their experiences with staff and encourage their staff to do the same. They
will also seek out the experience of other leaders to their own benefit. This process will
ensure that the collective experience of the team is constantly improved.
12) Exemplify and reinforce the military ethos; maintain order
and discipline; uphold professional norms
At first glance to the untrained eye this principal would not seem to apply to a nonmilitary structure. However, the truth is quite the opposite. Military ethos are
fundamentally the same as the core ethics adopted by every professional organization.
These ethics are the basic right and wrongs when serving as a professional regardless
of the specialty chosen. It is the responsibility of the leader to ensure these same
ethical values are instilled in their team who may not have the same level of formal
training. The leader is also responsible for maintaining order and disciple in their team
through the enforcement of corporate policies. It is critical for leaders to curb disruptive

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or unproductive behavior in the team to ensure it does not spread and become deeply
rooted in the organizational culture.
Through all levels of military leadership training, the principles of leadership are set as
the focal point. Great lengths are taken to instill them as core concepts upon which all
other training is developed. This ensures that all leadership training is progressive and
inter-related. Although all leaders in the CF are trained to memorize each one in detail,
most will not find fault with those that carry the written principles on them at all times for
quick reference. With careers that span years or even decades it would be far too easy
for the high level of training to be forgotten without constant refresher training, which
would put a huge burden on the productivity of the entire organization. By engraining
these principles into the very culture of the organization it provides for a constant
reminder to the individual and each point quickly reminds the individual of the detailed
concepts that each one is based on. This ensures that the training delivered carries
more effectively through an entire career rather than be forgotten.

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"The supreme quality for leadership is unquestionably

integrity. Without it, no real success is possible, no matter
whether it is on a section gang, a football field, in an army, or
in an office." - Dwight D. Eisenhower
Municipal vs. Military Organization
Many would be quick to point out that the military is an organization that is vastly
different from any corporation or public institution. The burden to protect the
sovereignty of the nation by any means necessary is unique to the military and the
necessities that combat puts on the organization results in in an organizational structure
that cannot be translated.
Although this may have been a correct assumption many centuries ago, the reality is
that military, government, and private organizations have changed greatly in modern
history. Despite the stark differences in training and approaches used in the military to
prepare for combat, many concepts have been assimilated by private corporations and
government organizations through the migration of highly trained former military officers
to senior positions within these institutions. Examples of this knowledge transfer have
included mission statements and strategic plans that have been adapted and adopted
by other organizations and are now common place. Similarly, militaries have benefited
from personnel being trained in non-military institutions. It is this migration of personnel
and knowledge that have resulted in these organizations being more similar than ever
before in history.
In order to understand how military leadership principles can be transfer to municipal
environments it is important to consider the differences and similarities in which these
organizations operate today. In modern times, Hollywood has done the military no
favours in showing the general public what day-to-day life is like in the military. The
reality is that fewer military personnel live on military bases, the ratio of support trades
has ballooned compared to dedicated combat soldiers, many military personnel now
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work in office environments, and many militaries are augmented by civilian personnel
that work alongside soldiers. It is these administrative environments which have striking
similarities to that of corporations and government agencies.
Even the positions within the organizations can be directly compared. The executive
leadership, whether it be senior officers in the military or directors in municipal
organizations are responsible for the overall organization by developing plans and
policies. Both sides are ultimately responsible to a group of elected officials, which can
have limited understanding of their organizations. The administrative personnel,
whether it be military clerical staff or municipal staff, are responsible for the day-to-day
implementation of the plans and policies set by the senior leaders. The front-line
personnel, whether it be combat soldiers or first responders, are tasked with dealing
with the difficult and dangerous situations that few others would like to or be able to deal
with. Finally, the support personnel, whether it be aircraft mechanics or public works
laborers, have the responsibility to make sure critical equipment and infrastructure is
maintained.

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"The most important thing I learned is that soldiers watch

what their leaders do. You can give them classes and lecture
them forever, but it is your personal example they will
follow." - Colin Powell
The Training Plan
Even though the skill of being an effective leader is extremely difficult to teach, it is
critical to ensure that current and potential leaders are presented with the fundamental
concepts of leadership in a comprehensive and effective method. This requires a
customized leadership training plan that draws upon all of the available training
techniques to create a comprehensive plan. This plan can be developed based on the
successes of other organizations with changes made to ensure it is compatible with the
organization. The plan should go well beyond the initial presenting of information to
include the day-to-day operations of the organization.
This can be accomplished by clearly identifying the core leadership principles that are
deemed fundamental by the organization, such as the military principles of leadership,
and making them a constant focal point in the organization. Methods such as posting
them in the work place, incorporating them into a strategic plan, incorporating them into
employee assessments, or a variety of other methods can be used to maintain this
focus. This will encourage individual employees to routinely consider leadership
principles with the ultimate goals of incorporating them into how they conduct
themselves in the workplace. This will also expose junior employees, that are not yet
trained as leaders, to the expectations that the organization has of its leaders. This will
allow junior employees a better opportunity to demonstrate their potential leadership
abilities, which will greatly assist the organization in identifying these potential
individuals for the purpose of developing their leadership skills for internal
advancement.

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This comprehensive plan will ensure that the leadership potential of the organization is
maximized, which will encourage higher employee retention, reducing the need to
attract outside leadership candidates, and ensuring the highest levels of leadership from
staff at all levels.

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If you dont understand that you work for your mislabeled

subordinates, then you know nothing of leadership. You
know only tyranny. - Dee Hock
Conclusions
Although it is up to an organization to determine what level of leadership is deemed
acceptable, few organizations would argue that there is always room for improvement.
Once improvement is determined as a priority, the organization must recognize the
value of leadership experience that other organizations possess. It is also important for
these organizations to recognize the similarities with other organizations that would
otherwise be dismissed as too dissimilar to be relevant. This will grant them a wealth of
experience that would otherwise be overlooked when developing or updating leadership
training programs.
One potential source that municipalities should consider is the leadership program
developed by the Canadian Forces. Despite the fact that the original program dates
back to 1973, components of this program have made their way into corporate training
plans with little or no recognition. This ad-hoc migration is direct evidence of the value
that the CF training plan offers and hints at the potential benefit of looking at the
program as a whole could offer to any organization.
Although many would overlook the CF as a similar organization the reality is they are
more similar than first realized. Whether it be an aircraft mechanic servicing an aircraft,
and finance clerk processing accounting information, or an engineer building a
temporary runway; the reality is that the majority of military occupations, when not in a
combat environment, are fundamentally the same as those in a municipal environment.
By focusing on the similarities of the organizations, the leadership program of the CF
can be used as the basis for a new or revised municipal leadership program. With

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special attention paid to the principles of leadership, which form the basis of the
program. This will allow the municipality to develop a program that does not merely
focus initial training of new leaders, but to also focus on the continued promotion of
effective leadership traits throughout their leaders careers.
However, It is not the intention of this report to suggest that the military principles of
leadership should be used verbatim as the basis of a radically new municipal leadership
program. Rather it should be used to highlight the value of the experience other
organizations have in developing successful leadership programs. Even though these
organizations may seem fundamentally different in the way they are structured or
operate, the reality is that they deal with the same types of people trying to deal with
similar types of organizational goals. Therefore, the only limit on the available material
and experience is that imposed by the individual or organization searching for it. The
true value that military training programs offers is evidenced by the way in which
portions of it have migrated into many other organizations, even without due credit or
appreciation to their origins.

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Bibliography
Australia. Australian Defence Force. Leadership in the Australian Defence Force. 2000
Bilcq, Ron S. Technically Write! Pearson Education, 7th edition, 2007

Canada. Department of National Defence. Leadership: Volume 1 Junior Leaders

Manual (CFP 131(1)). 1973.
Canada. Department of National Defence. Leadership: Volume 2 The Professional
Officer (CFP 131(2)). 1973.

Canada. Department of National Defence. 1998 conference on military leadership. 1998.

Canada. Department of National Defence. Leadership in the Canadian Forces - Doctrine.
2005.
Canada. Department of National Defence. Leadership in the Canadian Forces Leading
People. 2007.

Canada. Department of National Defence. Toward A General Model of Military

Leadership for the Canadian Armed Forces. 1979.
Hammond, J.W. First Things First: Improving Canadian Military Leadership 1998

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