The author speaks from experience as president, since 1971, of the University of Cincinnati, the nation's second largest urban university; two previous administrative positions at the State University of New York at Buffalo; and the specialized field of the organizational development of large management systems. Eleven chapters, nine published previously as separate articles or speeches, address why leaders can't lead and suggest concrete, practical courses of action that those in authority can take to help solve the typical problems they encounter. Many of the examples pertain to the organizational structure of large, urban universities; however, business and especially the federal government are also included. Names and circumstances of the social revolution inflamed by the Vietnam war, Watergate, racial confrontations, and the recent push for equal rights for women are among the many issues discussed. The leader's function is defined as creating for his institution clear-cut and measurable goals based on advice from all elements of the community. This is viewed as possible only with the creation of an executive constellation of experts that distinguish between leadership and management and protect the leader from getting enmeshed in routine machinery. (Author/MLF)