Outcome and Process Frames: Strategic Renewal and Capability Reprioritization at the Federal Bureau of Investigation

Abstract

Framing is critical for leaders who must build support for strategic renewal. While research has concentrated on renewal that replaces one set of capabilities with another, we explore a distinctive challenge: how leaders persuade stakeholders to endorse the reprioritization of resources toward a capability set that must coexist with an existing one. Moreover, while research has focused on how leaders build employee support for renewal, we examine how to persuade those overseeing resource allocation. Our study analyzes Director Robert Mueller's 12-year effort at the FBI—after the 9/11 terrorist attacks—to build up counterterrorism capabilities while maintaining existing law enforcement capabilities. We offer a novel distinction between outcome frames and process frames and discuss how each frame, sequenced properly, is relevant to strategic renewal.