The Art of Understanding: A City Manager’s Guide to Transformative Listening

In municipal leadership, there is a common temptation to pride oneself on the ability to explain complex policies, defend budget decisions, or present compelling visions for your cities. Yet, as Stephen Covey teaches in “The 7 Habits of Highly Effective People,” the most powerful tool in our leadership arsenal isn’t our ability to speak – it’s our capacity to truly understand.

The Municipal Leader’s Communication Challenge

Consider a typical week in city management:

• A frustrated resident demands action on neighborhood issues
• Council members press for explanations on project delays
• Department heads advocate for competing budget priorities
• Employee groups voice concerns about workplace changes

In each situation, one’s natural instinct is to jump to explanations or solutions. But Covey’s principle, “Seek First to Understand, Then to Be Understood,” suggests a more powerful approach.

Beyond Active Listening

While most leaders are familiar with active listening, Covey’s principle goes deeper. For city managers, this means:

1. Empathetic Engagement

• Move beyond hearing words to understanding emotions
• Recognize underlying fears and aspirations
• Acknowledge the validity of others’ perspectives, even in disagreement

2. Context Awareness

• Understand the historical background of issues
• Recognize political and personal dynamics at play
• Consider timing and circumstance of concerns

3. Solution Partnership

• Involve stakeholders in problem-solving
• Build shared ownership of challenges
• Create collaborative paths forward

The Understanding Toolkit

Here are practical tools for implementing this principle:

1. The Pause Practice

Before responding to any significant issue:

• Take three deep breaths
• Ask yourself: “What might I be missing here?”
• Consider: “What’s the story behind this story?”

2. The Four Questions

In stakeholder meetings, consistently ask:

• “What does success look like from your perspective?”
• “What concerns you most about this situation?”
• “What solutions have you considered?”
• “What support would be most helpful?”

3. The Reflection Loop

After each interaction:

• Summarize what you’ve heard
• Verify your understanding
• Acknowledge emotions and concerns
• Clarify next steps together

Understanding in Crisis

Often, our greatest test of understanding comes during crisis:

• A controversial council decision sparks community outrage
• A major project faces unexpected opposition
• Internal conflicts threaten team cohesion

In these moments, resist the urge to immediately defend or explain. Instead:

1. Create Space

• Schedule listening sessions
• Make time for one-on-one conversations
• Provide multiple channels for feedback

2. Seek Patterns

• Look for common themes in concerns
• Identify underlying issues
• Recognize shared aspirations

3. Build Bridges

• Acknowledge valid points from all sides
• Find common ground
• Create collaborative solutions

The Understanding Leader’s Advantage

City managers who master this principle experience:

• Stronger council relationships
• More engaged employees
• Better community trust
• More effective problem-solving
• Reduced conflict and resistance

Moving Forward

Understanding others isn’t just a nice-to-have skill – it’s a fundamental requirement for effective municipal leadership. As you develop this habit:

• Start small with one conversation at a time
• Be patient with yourself and others
• Celebrate the insights and connections you gain

Remember, the goal isn’t to agree with everyone, but to truly understand them. This understanding becomes the foundation for all effective action.

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Transform Your Leadership Impact in 2025
Ready to elevate your stakeholder engagement? The Municipal Leadership Development Circle (MLDC), launching on January 6, 2025, offers city managers advanced training in transformative listening and stakeholder understanding. Join a community of municipal leaders committed to building stronger relationships and more effective solutions through deeper understanding.

Learn More & Save Your Seat

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Seth Winterhalter is President of HaltingWinter Municipal Solutions, dedicated to making stronger cities through stronger leaders. Through executive coaching, consulting, and the Municipal Leadership Development Circle (MLDC), HaltingWinter helps city managers and municipal leaders transform stakeholder relationships and build trust-based solutions for complex municipal challenges.