Using Maslow's theory of human psychological development as a framework, a model based on the hierarchy of values is proposed to explain how not-for-profit organizations develop an ethical culture. As with individual values, the five levels of ethical behavior-financial competence, accountability, reciprocity, respect, integrity-are attained successively and one at a time. Thus ethical values are a foundation for achieving integrity, defined herein not only as incorruptibility but as a total commitment to the highest standards of behavior. External controls stimulate ethical behavior primarily at the lower levels; internal controls must be present to achieve an ethical organizational culture. Maslow (1943) formulated an enduring and provocative theory of human motivation. Scholars have both venerated and disparaged his theory, but it is continually cited and tested more than six decades after his initial contention that individuals act based upon a hierarchy of needs. Not only does Maslow's work have mainstream appeal-with references in the popular press ranging from the Wall Street Journal and Forbes to Sports Illustrated-but his hierarchy is utilized extensively in scholarly work. Research employing the theory has been published in numerous academic journals, including

The not‐for‐profit sector has long played an important role in the policy process through encouraging political engagement, policy research and advocacy, and service delivery. This paper examines two not‐for‐profit organizations, National Children's Alliance and National Alliance on Mental Illness, both of which are grassroots organizations formed to radically change public and professional perceptions of their respective issues and reform the way services are offered to those in need. Borrowing from the literature on policy image and agenda setting, we identify the strategies used by these two highly successful not‐for‐profit groups in their efforts to change the system through redefining problems, reframing issues, and securing legislation with the help of policy entrepreneurs and politicians sympathetic to their causes.

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