Outcome and process frames: Strategic renewal and capability reprioritization at the Federal Bureau of Investigation

Abstract

Research Summary: 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. Managerial Summary: This study examines how leaders can build support for strategic renewal when an organization must develop new capabilities while maintaining existing ones. We analyze how FBI Director Robert Mueller, in the wake of 9/11, used strategic communication—or framing—to persuade members of Congress overseeing the FBI's budget to support the development of new counterterrorism capabilities alongside its traditional law enforcement mandate. We highlight two types of frames: outcome frames (focused on what the organization seeks to achieve) and process frames (emphasizing how the organization operates). Our findings reveal that sequencing these types of frames is essential. By using outcome frames to address immediate concerns and shifting to process frames to resolve longer-term tensions, leaders can build stakeholder support for complex resource reprioritization efforts.