Trends and Gaps: A Meta-Review of Representative Bureaucracy

• Date: 01 December 2020
• Author: Sebawit G. Bishu,Alexis R. Kennedy
• DOI: 10.1177/0734371X19830154
• Published date: 01 December 2020
• Subject Matter: Articles

https://doi.org/10.1177/0734371X19830154

Review of Public Personnel Administration

2020, Vol. 40(4) 559 –588

© The Author(s) 2019

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DOI: 10.1177/0734371X19830154

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Article

Trends and Gaps: A Meta-

Review of Representative

Bureaucracy

Sebawit G. Bishu1 and Alexis R. Kennedy1

Abstract

The representative bureaucracy theoretical framework explores the link between

bureaucrats’ social and demographic characteristics and their likelihood to take

actions that benefit citizens with whom they share identities. This meta-review

analyzes 96 peer-reviewed representative bureaucracy journal articles to explore

how the theoretical framework is described and applied and to track the contextual

development of representative bureaucracy over time. Despite how far the field

has come in connecting bureaucratic identity to normative policy outcomes, we

find that the application of the theoretical framework is operationalized using a

narrow set of shared identities (race and gender). In addition, we conclude that

representative bureaucracy has been applied in limited geographic, methodological,

and policy areas. Our article argues that the absence of studies that focus on

intersectional identities, different geographic and policy contexts, and more

qualitative and mixed methods impedes our understanding of the link between

passive and active representation.

Keywords

meta-review, bureaucratic representation, passive representation, active representation,

diversity, gender and public personnel administration, affirmative action and equal

employment opportunity

Introduction

The theory of representative bureaucracy posits bureaucracies that share demo-

graphic characteristics with the public may act in ways that benefit the interests of

1University of Colorado Denver, USA

Corresponding Author:

Sebawit G. Bishu, University of Colorado Denver, Lawrence Street Center, 1380 Lawrence Street, Ste.

525Q, Denver, CO 80204, USA.

Email: sebawit.bishu@ucdenver.edu

830154ROPXXX10.1177/0734371X19830154Review of Public Personnel AdministrationBishu and Kennedy

research-article2019

560 Review of Public Personnel Administration 40(4)

the population they serve (Mosher, 1968). Passive representation manifests when

government organizations hire and promote a similar proportion of women and peo-

ple of color that exists within the society (Atkins & Wilkins, 2013; Mosher, 1968).

Passive representation becomes active representation when shared demographic

characteristics between bureaucrats and the public result in the promotion and adop-

tion of programs and policies that benefit the specific population being represented

(Mosher, 1968). The use of this theoretical framework recognizes that, under certain

circumstances, a link exists between representation and bureaucratic decisions that

affects minorities and women. Studies of representative bureaucracy examine the

circumstances under which representation produces, or does not produce, positive

outcomes for traditionally underrepresented groups. While a number of studies

apply the theory of representative bureaucracy to examine the effects of representa-

tion on outcomes that benefit minority groups, the existing literature lacks an in-

depth analysis of the application of the theory, hence missing the opportunity to

examine the strength and limitation of its broader application.

In this study, we conducted a content analysis of 96 peer-reviewed journal arti-

cles focused on representative bureaucracy. In an era where the need for diversity

and inclusion of bureaucracies is a critical discourse, this meta-review of past and

current literature aims to accomplish three goals. First, we hope to document con-

ceptual applications of the theoretical framework of representative bureaucracy,

identifying the historical development of representative bureaucracy along with its

conceptual evolution. Specifically, we are interested in early definitions of the con-

cept of representative bureaucracy as well as the evolution of the theoretical frame-

work including when it produces outcomes, how representation manifests itself

(passive, active, or symbolic representation), and what assumptions are required for

representative outcomes to be achieved. This objective aims to accomplish two

purposes. First, it intends to trace conceptual development of the theory over time.

In addition, it aims to understand the trends in the types of issues addressed and

questions asked when the theory is applied. Second, we aim to uncover contextual

and analytical applications of the theoretical framework to highlight where repre-

sentative bureaucracy has been vastly applied, where it has been minimally applied,

and where it is absent. Third, we provide an assessment of how representative

bureaucracy has been tested. Doing so helps highlight the different dimensions

within which the theoretical framework has been used as well as identify its

strengths, gaps, and limitations.

Our content analysis reveals representative bureaucracy has been tested in policy

areas (mainly education and law enforcement), geographic locations (mainly the

United States), and using demographic identities (mainly race and sex). We also find

most of the existing literature lacks clear definition and operationalization of what

constitutes race and gender, in addition to rarely considering intersectional identities.

We find that the theoretical framework has been predominantly tested using quantita-

tive analytical techniques, and only a few studies use qualitative analysis or mixed

methods (see Atkins & Wilkins, 2013; Kennedy, 2013; Rehfuss, 1986; Watkins-Hayes,

2011). Thus, our recommendation is that the representative bureaucracy theoretical