What is a stakeholder map and how to create one

Stakeholders are a crucial component in any advocacy project. They are individuals or groups who have a vested interest and influence in the success or outcome of a particular proposal or action. These stakeholders can include the legislature, executive branch and its agencies, businesses, nonprofits, associations, coalitions, and even the local community. Each stakeholder brings their own unique perspective, set of expectations, and political capital to the table, making it essential for you to identify and engage with them effectively. By understanding the needs and concerns of each stakeholder, advocates can make informed decisions and develop strategies that align with their interests. Creating a stakeholder map is a valuable tool in this process, as it visually represents the various stakeholders and their relationships to the proposals or asks. This map helps advocates gain a comprehensive view of who their stakeholders are and enables them to prioritize their efforts in engaging and building relationships with these key individuals and groups.

The history of stakeholder mapping traces back to the late 1960s when management scholars and practitioners recognized the importance of identifying and analyzing stakeholders in organizational decision-making processes. The concept gained prominence with the emergence of stakeholder theory, which suggested that organizations should consider the interests of all individuals or groups affected by their actions. Over the years, stakeholder mapping techniques have evolved, incorporating various frameworks and methodologies to capture the complex relationships between organizations and their stakeholders.  In our case we will create policymaker, decision maker, and influencer stakeholder maps that help us see all the actors and plan multiple engagements across the spectrum of stakeholders.

Map Your Advocacy: Build a Tactical Stakeholder Plan

In government advocacy, knowing who to influence is just as important as knowing what to say. But navigating the crowded landscape of decision-makers, advisors, and influencers can be overwhelming—especially when outcomes matter and time is short. That is why Government Analytica developed a proven system that turns confusion into clarity.

This guide introduces three powerful tools—Policy Influence Network, Three Engagement Strategies, and the Stakeholder Engagement Planner—that together form a tactical mapping system for advocacy success. When used as part of the broader Executive, Legislative, and Pressure Group Framework, they help you identify, prioritize, and strategically engage the people who matter most to your policy goals.

Understanding the Core Concepts

Policy Influence Network (PIN)

The Policy Influence Network is your master map of the people and organizations that shape government decisions. It helps you identify stakeholders across three categories that make up Government Analytica’s Executive, Legislative, and Pressure Group Framework:

• Executive Branch Stakeholders: These include government leaders such as governors, mayors, commissioners, cabinet members, and agency heads.

• Legislative Branch Stakeholders: These are elected officials such as members of Congress, city council members, parliamentary representatives, and their staff.

• Pressure Group Stakeholders: These are external actors with influence, such as nonprofits, advocacy organizations, associations, academia, media, and civic coalitions.

The Policy Influence Network gives you a detailed picture of who has power, who has influence, and who connects the dots behind the scenes.

Three Engagement Strategies (3ES)

Once you know who your stakeholders are, the next step is to assess their position relative to your proposal. The Three Engagement Strategies framework helps you do just that by organizing stakeholders into three influence categories:

• Supporters: These individuals or organizations already agree with your goal or message.

• Neutrals: These stakeholders are either undecided or unfamiliar with your proposal.

• Opponents: These are people or groups who actively disagree or may stand in the way of your goal.

Each category requires a different strategy. Supporters need to be mobilized. Neutrals should be educated and persuaded. Opponents may need to be managed, neutralized, or reframed.

Stakeholder Engagement Planner (SEP)

The Stakeholder Engagement Planner is a strategic planning matrix that combines the Policy Influence Network and the Three Engagement Strategies. It uses a 3-by-3 grid to align each stakeholder’s role (Executive, Legislative, or Pressure Group) with their engagement category (Supporter, Neutral, or Opponent).

This tool gives you a clear visual of where every key player stands—and what to do about it. It transforms random contact lists into a strategy-driven engagement plan.

Create a Stakeholder Map

To create a stakeholder map, follow these simple steps:

1. Identify Stakeholders: Begin by brainstorming and listing all potential stakeholders.  Clusters them into members of the executive branch. legislative or policymaking branch, or pressure groups. Go to these groups' websites, seek their organization charts, search the web and LinkedIn, and locate the key influencers and decision makers.  
2. Categorize Stakeholders: Once you have identified the stakeholders, categorize them based on their level of influence and interest in the project. This categorization will help you prioritize your efforts and focus on the stakeholders who have the most impact on the success of your website.  In the Government Analytica Structure Advocacy Process (SAP) we divide the key stakeholders into 3 groups: in-favor of your proposal or ask, neutral about it, or against it.  If you do not know where they stand always place them in the neutral position.
3. Gather Stakeholder Information: Conduct research and gather information about each stakeholder, profiling them individually and profiling their organization if relevant.   This can include their roles, responsibilities, goals, expectations, and any other relevant details. Use surveys, interviews, or online research to collect this information.  As part of Government Analytica's Structured Advocacy Process (SAP) we have created two tried and tested templates for profiling individuals and organizations.  We highly recommend using these.  Contact us for a copy.
4. Explore Relationships Among Stakeholders: Examine the relationships between stakeholders and identify any dependencies or conflicts. Understanding these dynamics will help you anticipate potential challenges and find ways to mitigate them.
5. Visualize it Via a Stakeholder Map: Create a visual representation of the stakeholder map using the picture above.  This will allow you to easily see the relationships, connections, and levels of influence among the stakeholders.
6. Regularly Update the Stakeholder Map: Stakeholder dynamics can change throughout the course of a web design project. It is important to regularly update the stakeholder map to reflect any changes and ensure that you have the most accurate and up-to-date information.

Without a carefully created stakeholder map and good profiling of individuals and organizations, we can engage with these stakeholders effectively and maximize the odds of a positive outcome.  The goal of our engagements are:

1. Amplify the voice of those stakeholders in-favor of our proposals or asks (we use one of several key tactics to do so)
2. Move neutral stakeholders to the in-favor position (we use one of several key tactics to do so)
3. Minimize the impact of those stakeholders that are against your proposals or asks (we use one of several key tactics to do so)

Step-by-Step:

Create Your Tactical Stakeholder Map

Step 1: Identify Stakeholders with the Policy Influence Network

Begin by developing your Policy Influence Network. List all relevant stakeholders across executive agencies, legislative bodies, and pressure groups. For each, collect:

• Full name and title

• Role and function in relation to your issue

• Organization and hierarchy

• Communication channels

• Known positions or past involvement with related policies

Go beyond the obvious figures. Include behind-the-scenes advisors, committee staffers, influential think tanks, and community voices. A complete Policy Influence Network ensures no key player is missed.

Step 2: Classify Each Stakeholder Using the Three Engagement Strategies

Now, assess each stakeholder’s position using the Three Engagement Strategies model:

• Supporters are those who have publicly endorsed, supported similar initiatives, or are aligned ideologically with your goals.

• Neutrals may not know much about your issue or have not taken a position.

• Opponents are likely to resist your message or actively work against it.

If you do not have enough information, begin by classifying the person as Neutral and revise as new insights emerge.

Step 3: Place Stakeholders in the Stakeholder Engagement Planner Matrix

Now that you know both the role (Executive, Legislative, or Pressure Group) and the engagement stance (Supporter, Neutral, or Opponent), place each stakeholder into the Stakeholder Engagement Planner.

For example:

• A mayor who supports your initiative belongs in the Executive Branch / Supporter cell.

• A nonprofit coalition that is undecided belongs in the Pressure Group / Neutral cell.

• A legislator who opposes your initiative belongs in the Legislative Branch / Opponent cell.

This mapping gives you a snapshot of where your influence is strong, where it is uncertain, and where it faces resistance.

Step 4: Define Tactical Actions for Each Matrix Cell

Use the Stakeholder Engagement Planner to drive strategy. Each of the nine cells in the 3-by-3 matrix should have a specific engagement approach:

This step turns insight into action. You are no longer treating all stakeholders the same. You are targeting based on role, stance, and strategic potential.

Step 5: Operationalize Your Map

Convert your completed Stakeholder Engagement Planner into a live engagement tool. Track:

• Contact history and meeting status

• Message customization per individual

• Follow-up tasks and team assignments

• Changes in stakeholder support (Neutral → Supporter, for example)

You now have a live dashboard of your influence campaign, allowing you to manage progress and shift resources as needed.

Why This System Works

By combining the Policy Influence Network, the Three Engagement Strategies, and the Stakeholder Engagement Planner, you move from random relationship-building to a guided influence campaign. Each tool builds upon the last:

1. Policy Influence Network gives you a complete list of decision-makers and influencers.

2. Three Engagement Strategies tell you how each stakeholder currently relates to your proposal.

3. Stakeholder Engagement Planner tells you what to do next—and how to do it.

Together, these tools provide clarity, structure, and strategic power.

Need Help Getting Started?

Government Analytica specializes in helping organizations like yours turn policy ideas into action. Whether you are a nonprofit, business, or coalition leader, we can help you:

• Build a customized Policy Influence Network

• Analyze and categorize stakeholders with the Three Engagement Strategies

• Develop a tactical plan using the Stakeholder Engagement Planner

Our experts bring decades of experience in executive and legislative engagement, and our tools are tested across federal, state, and international systems.

👉 Contact Government Analytica today to schedule a strategy session and start building your tactical stakeholder map with confidence.