Assessing the state of stakeholder relationships:
The Stakeholder 360
Mining projects are located in
socio-political networks of relationships among the company’s stakeholders.
This article describes commonly encountered business risks associated with
the mismanagement of those relationships at different stages in the life cycle
of a mine. We argue that understanding the structure of the network and the
levels of social capital in the relationships that link stakeholders is essential
for avoiding such risks and for maintaining a social licence to operate. Practical
management tools for acquiring such an understanding have been lacking until
now. However, a socio-political measurement system known as the Stakeholder
360 was recently developed to help managers gain that understanding at an
actionable level of detail. Examples from a Stakeholder 360 pilot study in
Papua New Guinea (PNG) demonstrate how it can provide practical guidance in
stakeholder relationship management. Because it graphs the patterns of social
capital in the community, it can also guide efforts at community economic
development and thereby build the company’s reputation as a preferred guest
in other communities in the future. That, in turn, gives the company broader
access to financing and investment.
In 1989, on an evening steaming with tropical humidity, an Australian anthropologist
slipped into a crowded meeting hall in a town on Bougainville Island, PNG.
The anthropologist had been asked by the local mining company to investigate
reports of unrest among native landowners. There were heated discussions
on every side. People were agitated. The anthropologist stood at the back
of the hall, trying to remain inconspicuous as the only white man in the room.
The charismatic speaker, Francis Ona, took the stage. With a litany of injustices
perpetrated by the mining company and the national government, Ona brought
emotions to a boil. Then, Ona spotted a visible target for the crowd’s outrage.
He pointed to the anthropologist at the back of the room and shouted, "That
man is a spy for the mining company!" The anthropologist saw hundreds of
faces turn in his direction. Many in the crowd were armed. In a flash, he
decided that his research was done. He bounded, like a kangaroo, out the
door and down the road to his truck – and lived to tell the story.
Francis Ona went on to lead an insurrection in which he and his forces seized
the mine and declared the independence of the province of Bougainville Island
from PNG. It was one of the more violent episodes of opposition to mining
in recent history. In many other places around the world, mining companies
have been stopped by non-violent opposition. In
Peru
,
for example, at least seventeen mining and mineral exploration projects were
stalled by conflict with local communities in July 2002. [1] Socio-political opposition translates
into bottom line costs large enough to bankrupt smaller companies.
RISKS OF IGNORING RELATIONSHIP
NETWORKS
If the Bougainville mine management had known more about the social network
among various groups on the island, they could have taken steps to reduce
the tensions and emotions that led to the local people forming a hostile coalition.
In more general terms, every society has anti-development, anti-change, and
anti-outsider factions. These factions compete for the loyalty and support
of as many additional neutral groups as possible. When they all have sufficient
motivation to join forces, they pose a risk to any international company in
the community, particularly when the neutral groups also have unaddressed
questions and concerns about the development. They may worry about how fairly
the benefits of development will be distributed. Sometimes they simply feel
threatened by the arrival of outsiders who may not respect their traditions.
Too often company management sees no need to "waste time" getting to know
the socio-political dynamics among community groups because they assume that
the economic benefits that the project will bring will far outweigh the costs.
Therefore, they ask, "Who in their right mind could object?" Of course, history
has answered that rhetorical question repeatedly. In remote underdeveloped
communities, jobs and money can bring all manner of social problems from housing
shortages and land conflicts to alcohol abuse and prostitution. Companies
invite blame for all those problems when they rely solely on their legal rights
to impose a project on a community. However, when a company understands enough
about the various stakeholder organisations’ interests and their relationships
with one another, it can negotiate more acceptable paths to change and thereby
share the responsibility for its consequences with the community itself.
Understanding the network of relationships in a community
is essential for avoiding the frequent problem of exacerbating social divisions.
Often quite unintentionally, a company’s impact on the social network creates
turmoil that often escalates to the point of conflict. The most common situation
arises when the company communicates with only one faction in the community,
usually the group that is friendly towards the project. Alternatively, a
"gatekeeper" situation may exist in which the company communicates with a
dominant group of leaders who do not pass on information to their base or
to other sub-groups. A similar situation can occur when the community is
riven with factions who do not share information with one another and who
compete for power or for the attention of the company. In all of these situations,
there is a risk of marginalising groups. They are left out of collaborative
initiatives with the company and do not get accurate information. That leads
to fear, rejection, resentment, and an inevitable backlash.
Maintaining open and trusting relationships with communities affected by
resource developments has been described as maintaining a "social licence
to operate". [2] If a company has its social licence to operate
withdrawn at one site, its international reputation suffers. As a result,
it often faces increased hurdles and barriers in the next community it wants
to enter. There is a growing body of evidence that a company’s financial
performance is significantly affected by its reputation, [3] and how well it treats its various stakeholders. [4] Therefore, global resource companies can be more
successful if they find and use the management tools they need to build better
relationships with local stakeholders. [5]
Within the mining industry, companies are coming forward
with policies and operating procedures that emphasise engagement with stakeholders
based on principles of respect, and on open, transparent communications and
consultation. They strive for the mitigation of social impacts, enhancement
of social and economic benefits, and participation in community development.
All of these help create a social licence to operate.
Nevertheless, mining companies often have difficulty building
relationships. Most often this arises from the belief that building social
infrastructure (schools, hospitals, etc.) will build good relationships.
Companies have a strong tendency to invest preferentially in infrastructure
because, unlike relationships, infrastructure is tangible, familiar, and easily
managed. [6] This preference for infrastructure tends to lead
to paternalism and dependency, and is not likely on its own to create strong,
collaborative, trusting relationships. A more holistic approach is required
to earn a lasting, stable social licence to operate.
PROJECTS AND RELATIONSHIPS BOTH HAVE
LIFE CYCLES
For the mining company, it is important to understand that social networks
(a) exist in a community before they arrive, (b) will be modified as the presence
of the company stimulates new linkages and causes old linkages to fall into
disuse, and (c) will continue after the mine is gone. The mining project,
even a short exploration programme, will interact with these networks. The
most appropriate type of relationship can vary throughout the life cycle of
mine. There are essentially three different phases to consider: exploration,
operation of the mine, and post closure. Each has its own dynamic.
Exploration is a phase of high risk and uncertainty in which most projects
fail; expectations are created and tensions may develop between pro-mining
and anti-mining factions in the community. As exploration advances and a
project becomes more certain, the operating company must start developing
its own relationships with community organisations. All the while, the possibility
that no mine will be built remains strong until feasibility is established
and permits are obtained. In this environment, the company must manage its
relationships with stakeholders for two potential outcomes – planing for success
and establishment of a mine, and preparing for failure and the need to withdraw.
The operating years of the mine represent a period of relative
stability and continuity during which relationships become established and
mature. For the company, there is need to understand the evolving networks
of relationships and ensure that all stakeholders are comfortable with the
presence of the mine. A recurrent problem is for managers to think of their
projects as the centre of all activity and thought. They tend to see relationships
arranged radially around the project. This denies the reality as experienced
by the community, which had many functioning relationships outside the project
before the it arrived, and will continue to have them. It is important for
project proponents to understand these relationships, and see the mine as
one node in a more complex network of relationships. By working to
strengthen social capital and enhance the existing relationships, the risk
of creating problems of paternalism and dependency are much reduced.
All mines eventually close. Upon closure, the relationship will end, or
at least change profoundly. Preparations for that day should begin before
the mine opens. The fine line that a company has to tread runs between not
having enough of a relationship with the stakeholders to be able to help them
benefit from the presence of the mine, on the one hand, and, on the other
hand, having too close a relationship that breeds dependence on the mining
company. As closure nears, it is particularly important for stakeholder organisations
that have worked closely with the company to consider how socially isolated
versus connected they will be with the rest of the community when the company
leaves. Ending relationships smoothly can be even more challenging than starting
them.
At all stages of the mineral extraction process, companies need a relationship
building tool that will do two things. First, it must identify the company’s
most important stakeholders and indicate how well those relationships are
going. Second, it must give managers an overview of the social network of
relationships among the stakeholders themselves. If the mining company on
Bougainville Island had had such a tool, they would have understood much earlier
the dangers they faced.
ASSESSING THE STATE OF STAKEHOLDER RELATIONSHIPS
In the last two years, management researchers at Simon Fraser University
(SFU) in Vancouver have been developing a stakeholder relationship assessment
tool that aims to directly meet the needs of managers in the mining industry.
Known as the "Stakeholder 360", the instrument is a survey and dialogue
process that eliminates much of the guesswork in developing and maintaining
the appropriate co-operative relationships with community stakeholders.
The thinking behind the Stakeholder 360 is that what people believe determines
what they will do. For example, if stakeholders believe a company will harm
them, they will be defensive and hostile towards the company. However, what
people believe depends on who they talk to, and who they trust. In other
words, perceptions of social reality are constructed in social relationships.
Company managers can either be included in the social reality construction
process that stakeholders go through, or they can be left out.
If managers want their information and values to influence how stakeholders
construct social reality, then they have to develop the right kind of relationships
with those stakeholders. The three most important qualities to have in these
relationships [7] can be summarised as ‘the three T's’: talking,
trusting, thinking. The managers and stakeholders should communicate openly
(talking), trust each other (trusting), and share common views of the present
situation and goals for the future (thinking). The Stakeholder 360 measures
the three T's.
The three T's have been grouped together under the umbrella
concept known as ‘social capital’ . In their management bestseller, In Good Company: How Social Capital Makes Organizations Work, [8] Don Cohen and Lawrence
Prusak define social capital as follows:
"Social capital consists of the
stock of active connections among people: the trust, mutual understanding,
and shared values and behaviors that bind the members of human networks and
communities and make cooperative action possible" (p. 3 - 4)
In assessing the relationship between a company and a stakeholder
group, the Stakeholder 360 collects perceptions from representatives of both
organisations. Most of the question are asked in a way that obtains a numeric
answer (e.g., rating). The mutual perceptions are then merged into a score
for the relationship itself.
Mapping the social networks in a community would take too
much time if every single individual were taken as a node in the network.
To avoid that problem, the Stakeholder 360 assumes that the leaders of stakeholder
organisations and groups are likely to be opinion leaders for their memberships.
The level of analysis is the group rather than the individual.
There are always some leaders of stakeholder organisations
who are not opinion leaders. Some may simply repeat the opinions of the real
opinion leaders who are not part of their organisation’s formal leadership
structure. That would not be a problem for the Stakeholder 360 because the
opinions surveyed would be the opinions sought. Some organisation leaders,
however, might have such low legitimacy with their members that they neither
reflect nor influence the members' opinions. Such leaders can be difficult
to identify in a single round of interviews, but with repeated surveys every
six to twelve months, the problem soon becomes apparent. In order to help
detect low legitimacy leaders, the Stakeholder 360 survey aims for interviews
with at least two or three leaders from each organisation. For example, the
opinion of the local church might be the average of the opinions of the Pastor,
the president of the women's fellowship group, and the choirmaster. If scheduling
permits, the ideal situation is to have all three of them sit down together
and agree on their organisation’s response to every question.
The Stakeholder 360 deliberately excludes unorganised aggregates
of people like those who are left handed, or those who have red hair, or those
who are women, unless those aggregates form themselves into an organisation
of some sort. The group need not be legally registered organisation so long
as it does have at least an informal, internally recognised leadership structure.
Therefore, clans, tribes, and cult groups would all qualify as stakeholder
groups.
In a town and it environs, there typically might be from
ten to thirty groups and organisations. Since this is a small population,
the survey is a census, not a sample. Therefore, the number of interviews
would number in the dozens, as opposed to the hundreds needed for a random
sample survey of population of thousands of individuals.
SOCIOGRAMS: MAPS OF NETWORKS
In the interviews, stakeholder representatives are asked about their organisation's
links with other organisations and with the company. Graphing the links among
the organisations produces a socio-political map, known as a "sociogram".
Figure 1 shows a sociogram based on hypothetical data.
A great deal of information can be deduced from the patterns
of linkages among organisations. For example, in Figure 1, the organisations
numbered from 1 to 6 all have links with one another. This type of pattern
is called "bonding". [9] [10] [11] These half dozen organisations would likely have similar views and
be capable of high levels of co-operation on complex tasks.
By contrast, the organisations numbered from 9 to 15 each
have only one link with any other organisation. They all link to organisation
8. Number 8 is said to be high in "centrality". [12] High centrality nodes in a social network tend
to have more influence than those with fewer links. However, if a situation
arose where organisations 8 to 15 had to co-operate, they would soon discover
an information flow bottleneck at organisation 8. This "hub and spokes"
structure tends to create a leader-follower pattern of interaction, rather
than co-operative interaction.
Figure 1: Hypothetical Sociogram of a Community
Network
Organisation number 7 exemplifies the phenomenon of "bridging".
With only two links, number 7 would be most likely to have access to the greatest
variety of information. Organisations 1 to 6 each have more links than number
7, but the information that travels on those links is largely redundant.
Number 5 would likely be the leader of the bonded group because that organisation
has one more link and has the greatest access to non-redundant information.
If organisation 8 were Francis Ona's group, and organisations
1 through 6 were various departments of the mining company, then the company
would be quite isolated and much too dependent on organisation 7. The sociogram
would make it obvious that the company needed to establish positive links
with organisations 9 through 15.
THE STAKEHOLDER 360
IN PNG
The Stakeholder 360 was first piloted in a developing country,
PNew. [13] The cultural differences between the global
company, Placer Dome International, and the community, Misima Island, put
the Stakeholder 360 to a rigorous test.
The University of Papua New Guinea (UPNG) and Simon Fraser
University collaborated to interview approximately 50 representatives from
nearly 15 to 20 stakeholder organisations at six to twelve month intervals
beginning in April 2001. The interviews were conducted in both the English
and Misiman languages by fourth year students from UPNG, under the supervision
of Dr. Albert Mellam, Dean of Business Administration.
The interview asked stakeholders about their visions for
the future of their community, current realities, and priorities for action.
When the data has been collected and analysed, the dialogue part of the Stakeholder
360 process began. The company convened its Sustainability Planning Advisory
Committee (SPAC) in a session facilitated by the SFU researchers. SPAC consisted
of representatives from landowning clans, churches, all four levels of government,
and NGOs from the local, national and international level. The session explored
common elements of future visions and ended with agreement on a list action
priorities. The effect of the dialogue session was a general increase in
social capital among the stakeholder organisations themselves.
A Stakeholder 360 survey conducted six months later revealed that most stakeholder
organisations had developed a clearer view of how the mine closure would affect
them, a more strategic set of goals for adjusting to the closure, a lower
perceived dependence on the mining company, and a higher perceived level of
agreement between their organisation and the mining company.
The Stakeholder 360 interviews included questions about
the importance of various relationships to each party in terms of how much
was at stake and how dependent they perceived themselves to be on the other
party's co-operation. The company's ratings of the importance of each relationship
were paired with the jointly rated levels of social capital in the relationship.
These pairs were graphed as X and Y co-ordinates on a scattergram. Ideally,
unimportant relationships would fall in the range of low social capital and
highly important relationship would be paired with high social capital scores.
Most relationships did fall on that diagonal. There were three, however,
which scored high on importance for the company but low on social capital.
These were flagged as relationships the company should try to improve.
Because the Stakeholder 360 built the social capital scores
out of ratings on the three dimensions of social capital (i.e., talking, trusting,
thinking), it was possible to diagnose the specific type of problems in each
relationship and make appropriate recommendations. One relationship was low
on the talking dimension. The company was able to develop better communication
procedures to keep that stakeholder apprised of decisions more quickly. Another
relationship was low on the thinking dimension. The company had its expert
employees spend more time helping that stakeholder accomplish a task it had
never tackled before. The third relationship was low on the trusting dimension
of social capital. The company offered to discuss the creation of institutional
structures that would insure against the misappropriation of funds for community
projects.
Six months later, two of the three relationships had social
capital scores that had risen to be appropriate for the importance of the
relationship. The relationship that was originally low in trust remained
that way and that stakeholder became slightly more isolated in the community
social network.
USING NETWORK KNOWLEDGE
TO PROMOTE COMMUNITY DEVELOPMENT
Because the Stakeholder 360 measures the social capital
in both the relationships between each stakeholder and the company and in
the relationships among stakeholders themselves, it can give companies the
information they need to make their presence a win-win situation for both
themselves and the local communities that host them. Krishna [14] studied economic development indicators in 60 villages in rural
India
. He found that
literacy and social capital were the best predictors of economic advancement.
Both bridging and bonding social capital were essential. The bridging had
to be with organisations that operated outside the village and that had resources
the village could use. The Stakeholder 360 provides an assessment of the
community on these crucial dimensions.
To promote poverty reduction, a mining company would follow
a four step strategy. First, it would assess the state of social capital
in the community, using the Stakeholder 360 or a similar technique. Second,
with the information about the community’s priorities, the company would convene
meetings and sponsor participatory projects that would bring the community
together. That would strengthen the social capital in the community. Third,
subsequent waves of Stakeholder 360 interviewing and dialogue would track
the sharpening and clarification of the community’s economic goals. Fourth,
the company would begin linking community leaders with outside organisations
that could provide needed resources. In a typical mining community, the mine
itself is such an organisation, but so are many of the organisations the mining
company deals with, like the national government and international non-government
organisations.
Planning and managing towards the community’s development
goals can benefit companies in terms of reduced risk and company reputation.
REDUCED RISK
There is already a strong business case for creating and
maintaining strong positive relations with stakeholders and hence being able
to measure and respond to changes in the relationships. Good relations lead
to a much reduced risk of conflict, faster permitting and approvals, lower
insurance premiums and easier access to loan financing. The Stakeholder 360
helps companies obtain these benefits by enabling them to adjust their community
relations programs to address measured needs. It also lets companies give
regulators, shareholders, banks and other interested parties hard evidence
about the past and present state of relationships between a project and its
stakeholders.
COMPANY REPUTATION
For companies thinking about their long-term reputations,
the Stakeholder 360 can confirm community visions of the future and so help
set company priorities for investment and capacity building. Being aligned
with the community’s goals generates political support for the company, which,
in turn, can be translated into a positive corporate reputation. A positive
reputation opens doors with the growing number of socially conscious investors
and investment fund managers [15] and with communities where the company may wish
to locate in the future.
The social-political side of managing resource development
projects have become much more important for corporate success over the past
15 years. Management concepts and tools remain relatively undeveloped as
yet. The Stakeholder 360 represents a practical step forward. At the beginning
of a project it can reveal the network structure and valence of existing relationships
and interdependencies so that the project can be woven into the community’s
fabric rather than ripped through it. During the operating years it can provide
guidance in minimising conflicts and dependency while stimulating spin-off
economic development. As closing nears, it can pinpoint the linkages that
need strengthening in order to leave behind sustainable benefits and a thriving
economy.
References