Superintendents of small school districts describe how they give voice, involve and listen to others, and solicit various publics to build democratic communities. Superintendents make sense of leadership through their constructed role, leadership orientation, and district size. Findings suggest the following when superintendents involve, listen, and give voice: Stakeholders expect to be heard by the superintendent; stakeholders often lack information and expertise for participating in decision making; expected decisions based on group decision making may not occur; and stakeholders often want to be involved in the decision-making process but do not want to be held responsible or accountable for a decision's implementation or outcomes.