It takes a leader to go to a meeting, enter the debate, and have a meaningful exchange with the other people who have come to the meeting. It takes a leader to sift the observations, the prejudices, and the realities and come to a consensus view of truth that can be moved forward. People who are leaders energize other people. Sometimes this stimulates conflict and causes debate. Sometimes it creates dissension and difficulty and occasionally a gastric ulcer.
Officeholders usually hate all that.
They prefer to manipulate groups rather than energize them. Energetic groups are more difficult to deal with. Officeholders love to take credit for the achievement, but they usually try to disassociate themselves from mistakes and failures by looking for a scapegoat. Leadership cannot be legislated. Most often it is not delegated.