Leading, reacting? Does it matter if the policy that results is a good one? The fact is that the development of a state budget has to be a conversation among many parties — the governor, the Legislature, the state’s citizens, the business community and its advocacy groups. The document, which is the single most important policy document any government can craft, outlines priorities and assigns dollar amounts to allow the state to put them into practice. The process, which begins with the governor’s budget address and unveiling of his budget, only works when everyone speaks his or her mind and is willing to compromise.