Administrators as Deliberative Representatives: A Revised Public Service Role

We suggest a role for public administrators as deliberative representatives. The goal is to apply a re-conceptualization of representation within the context of public administration based on a literature review on the following concepts: 1) representative democracy, (2) representative bureaucracy, and (3) deliberative democracy. We find that dominant models of representative democracy are ill suited for ensuring the true interests of citizens and communities are met and that representative bureaucracy is not satisfactory to address the failings of representative democracy. Finding promise in deliberative democracy models, we consider how the re-conceptualization of representation for the administrative role might shape the advancement of public participation in order to enhance the quality of representation. Specifically, a fourth construction is defined to add to the list of three above: deliberative representation.     

BLAMING THE VICTIM; THE ROLE OF DECISION-MAKERS IN THE OCCURRENCE OF ENVIRONMENTAL INJUSTICE

ABSTRACT

Past research on environmental justice concerns has focused primarily on the siting of hazardous waste facilities. Less research has been done on other aspects of environmental policy in which concerns of racial or other injustices arise. This study shows that environmental injustice is not limited to the sitting of hazardous facilities or the occurrence of pollution, but occurs also at the policy formation and implementation stages in other areas such as solid waste management. To study this issue, this study focuses on the implementation of the Illinois Solid Waste Management Act of 1988, in two counties in north-eastern Illinois, Kankakee and Will. In neither of the two counties were minorities included in the planning process, and out of a total of 91 advisory committee members, minority interests were represented by only one black male. At the same time racial minorities made up about 15 percent of the total population in the two counties.

The study shows that the main reason for this lack of representation is not a lack of environmental concern among blacks. Nor can it be explained by a lack of interest in participation in environmental decision-making among blacks. Rather, the study shows that the process is led by misconceptions among planners and decision-makers who generally believe that blacks are not interested in environmental issues and therefore not interested in participating in environmental decision-making. The conclusion of this study is that it is the belief held by local planners and decision-makers that there is a lack of interest in environmental issues among blacks, that produced a planning process in which the interest of minorities were not represented.     

Reconciling public administration and democracy: the role of the responsible administrator

This article considers whether the individual responsibilities of bureaucratic officials provide a useful means for reconciling the tension between democracy and bureaucracy. Three questions central to the proper definition of bureaucratic responsibility are examined: (1) What is the relation of bureaucratic responsibility to the view that proper bureaucratic conduct is essentially a matter of ethics and morality? (2) If the appeal to moral values does not ordinarily offer an acceptable guide to proper bureaucratic conduct, upon what principles does a theory of bureaucratic responsibility rest? (3) What issues arise in putting responsibility into practice within a complex organizational setting? The article concludes that a democratic, process-based conception offers the most useful way of thinking about the responsibilities of bureaucratic officials.

The tension between democracy and bureaucracy has bedeviled public administration. However one defines democracy, its core demand for responsiveness (to higher political authorities, the public, client groups, or whatever the presumed agent of democratic rule) does not neatly square with notions of effective organization of the policy process and efficient delivery of goods and services, which are central to the definition of bureaucracy. Responsiveness need not guarantee efficiency, while bureaucratic effectiveness and efficiency often belie democratic control.

This tension between democracy and bureaucracy persists, but that it is the individual administrator who directly experiences the tension is especially important as a guide toward a resolution of this conflict. Since divergence is central to this tension between democracy and bureaucracy, speculation about the responsibilities of bureaucratic officials—their individual places within the bureaucracy, particularly the administrator's thoughts, choices, and actions—provides fruitful terrain for resolving the question of bureaucracy's place within a democratic system of rule.

Three questions need to be addressed if one accepts the premise that individual responsibility is central to locating the place of bureaucracy in a democratic order. First, what is unique about bureaucratic responsibility, especially in contrast to the view that these are largely ethical problems that can be resolved by appeal to moral values? Second, if dilemmas of bureaucratic conduct are by and large not resolvable through appeal to moral values, upon what other principles does a theory of bureaucratic responsibility rest? Third, what issues arise in putting responsibility into practice, especially within a complex organizational setting? This list of questions is not meant to be exhaustive but only a starting point for discussion.     

Representative bureaucracy and impartial policing

Representative bureaucracy theory expects minority bureaucrats to advance the interests of minority citizens. Yet, little attention has been given to the variation in the acceptability, incentives and risks of representation across bureaucratic domains. Analysis of over two million police vehicle stops from four different US departments reveals that African American police officers do not treat African Americans preferentially, yet they mitigate existing racial disparities in policing. Compared with White officers, African Americans seem less disposed to use their discretion. They are disinclined to search drivers, yet inclined to cite them, displaying comparatively low disparities across social groups. These findings extend to pure traffic violations, and are robust to entropy balancing reweighting. We provisionally attribute African American police officers' impartial policing style to their compelling need to display their performance, and avoid blame, amidst intra‐organizational pressures and risks ensuing from the political salience of the police's clash with minority communities.     

Representative Bureaucracy in the Public Service? A Critical Analysis of the Challenges Confronting Women in the Civil Service of Ghana

In the public administration literature, the debate concerning the representation of minorities in the public bureaucracy continues to attract attention. The idea is that passive representation may lead to active representation with the later helping to develop policies and programs that will benefit minorities. Consequently, a number of governments have been implementing policies to enhance the involvement of minorities in public services. The Ghana government has not been left out in this endeavor. Since 1957, it has continued to institute measures to ensure a fair gender representation in the bureaucracy. This notwithstanding, the upper echelons of the bureaucracy continue to be dominated by males despite the over representation of women at the lower levels. What are the challenges confronting women in the public sector that make it difficult to achieve active representation? In this article, we examine the challenges confronting women to achieve active representation from a representative bureaucracy perspective.     

Ethics in organizations: a perspective on reciprocation

Some scholars have assigned the responsibility for ethical conduct in the public sector to individual administrators. Supporters of this perspective contend that individuals are able to introduce ethics into the administrative process by assuming personal responsibility for ethical action. The inference is that organizations cannot be expected to assume responsibility for ethical conduct.

Conversely the contention that individual ethics are inadequate in organizations is posed as a counter argument. Supporters of this contention argue that individual integrity does not mean that organizations will act ethically. They argue that organizational ethics are independent of individual ethics. Hence, they are treated as separate entities that do not compliment each other.

An argument that organizations and individuals engage in complimentary actions which lead to ethical conduct is largely absent in the literature. I argue that there is a reciprocal relationship between individuals and organizations. Thus, individual and organizational ethics are not separate but interactive entities     

Professionalism,Responsiveness, and Representation: What do They Mean for City Managers?

The literature in public administration advances three important values for public administrators. In their roles as technical experts, public administrators are professionals whose decisions are guided by the norms and principles of the public administration profession. In their roles as appointed officials, public administrators are expected to be responsive to their elected superiors. As representatives of the community, they are expected to voice the concerns and demands of citizens. Professionalism, responsiveness, and representation all are considered fundamental values that must be reflected in administrative decisions and actions. Despite the importance of these three values for public administration, insufficient empirical research has been done to examine what these values mean for public administrators. That is, the critical question that remains unanswered is: “What activities of public administrators are associated with these three values?” Based on a nationwide survey of city managers, this article identifies critical activities in which public administrators get involved, then reduces these activities into factors (dimensions), and finally examines the correlation of these factors with attitudes of city managers towards professionalism, responsiveness, and representation. The findings of this research help make these three values more concrete by associating them with major policy and political activities of city managers.     

Representative bureaucracy,international organizations and public service bargains

Academic interest in the administrative aspects of international organizations is on the rise. Yet, an issue that has received little attention is bureaucratic representation—the extent to which international bureaucracies are representative of the polity that they serve. The article theorizes the rationales for and forms of representative bureaucracy in international organizations by combining insights from the representative bureaucracy literature with the ‘public service bargains’ framework. It argues that bureaucratic representation is highly relevant in international organizations, given the diverse polity these organizations serve and their precarious legitimacy. It distinguishes three types of representational ‘bargains’ between international organizations and those they serve, centred on power, equal opportunities and diversity, and discusses under which conditions each type of bargain is likely to be struck. The argument contributes to discussions about representative bureaucracy in international organizations and to broader theoretical debates about international public administration.     

Theft in South Africa: An Experiment to Examine the Influence of Racial Identity and Inequality

This article uses a dictator game to determine the impact of racial identity and inequality on theft in South Africa. A dictator can take money from a receiver's endowment. The money vulnerable to theft is constant across groups, and there is no threat of punishment. Any differential in the amount taken is due to considerations of the racial identity of the potential victim or to variation in receiver endowments. The results provide weak evidence that theft is impacted by inequality. However, racial identity significantly influences theft decisions. Contrary to expectations, black participants take 15 per cent more from other black participants.     

Mestizaje,Córdoba's patria chica: beyond the myth of black disappearance in Argentina

This article examines the ‘disappearance of the black population’ by moving beyond the more traditional explanation of the blanqueamiento (whitening) movement at the end of the nineteenth century. In shifting the temporal framework to the republican period, 1820–1853, a more colorful explanation arises to address how the black population was first lightened which would lead to it being whitened during the second half of the nineteenth century. Ultimately because of mestizaje (racial mixture), blacks and other castas (a person who was not a Spaniard and often of a mixed racial heritage) became pardos. Pardos at first included those of mixed heritage with an elite status among other castas in the colonial period. As Córdoba joined the nation-building process, pardo encompassed all people of color, especially the growing, free black population. In order to explain this process, I traced African descendants who were originally labeled negro and changed to pardo in the 1813, 1822, and 1832 city censuses     

Representative bureaucracy and unconscious bias: Exploring the unconscious dimension of active representation

Representative bureaucracy theory explores the effects of representation on bureaucracies, but less attention has been paid to date as to how agents represent values or interests. Addressing this omission, this article highlights the unconscious dimension of active representation and, more specifically, the role of unconscious bias in representation. Unconscious bias has received limited attention to date in public administration, but has clear relevance for understanding how representation occurs at the individual level. This article proposes a framework for understanding unconscious bias. Drawing on Bourdieu's habitus, but making explicit its unconscious dimension, I argue that unconscious bias enhances our understanding of how active representation occurs in bureaucracies today. The article applies these insights to the case of unconscious gender bias as found in the Australian Public Service (APS) and concludes by exploring the methodological challenges involved in building a research agenda into tackling unconscious bias.     

An examination of job attitudes of white,black, and hispanic nurses in a public hospital

This paper reviews the literature on racial differences in job satisfaction and examines differences among whites, blacks and hispanics in job-related attitudes for a sample of nurses employed in a public hospital. Levels of job satisfaction, organizational commitment, turnover intentions, and job burnout were compared among the three race categories. Results indicated that significant differences existed for levels of job satisfaction, organizational commitment and job burnout among whites, blacks and hispanics. Hispanics reported significantly higher job satisfaction than whites and blacks, and whites reported less organizational commitment and higher levels of job burnout than blacks.     

THE PARTICIPATORY AND DEMOCRATIC POTENTIAL AND PRACTICE OF INTEREST GROUPS: BETWEEN SOLIDARITY AND REPRESENTATION

Embracing ‘groups’ as means to address democratic deficiencies invites scrutiny of their democratic practices. However, many groups lack internal democratic practices and offer few opportunities for affiliates to participate. Guided by an implicit ‘representation’ narrative of groups, the absence of internal democratic practices is interpreted as a sign of ‘failure’ or ‘deficiency’. Some scholars have entertained the idea of setting minimum standards of internal democracy as a prerequisite for policy access. This article scrutinizes this emerging consensus and its ‘representation’ narrative. Drawing upon the work of O’Neill (2001) and Pitkin (1967) , it is argued that groups can also be viewed through a lens of solidarity. This paper argues that the type of constituency a group advocates for can be used to calibrate expectations of internal democratic structures of accountability and authorization. The concepts of ‘representation’ and ‘solidarity’ are used to make sense of the (changeable) practices of a variety of groups.     

Representative Bureaucracy: Examining the Effects of Female Teachers on Girls’ Education in Ghana

Scholars have examined representative bureaucracy as a viable means to make the bureaucracy more responsive to citizens in a democratic society. The theory argues that a diverse public service that mirrors the social demographics of its population in terms of gender, race, and ethnicity (passive representation) is more likely to be responsive to the needs of all citizens (active representation). Although a substantial body of empirical research exists, a comparative understanding of the theory is lacking in Africa. This study expands the empirical research on the theory to Ghana. It investigates whether passive representation of female teachers makes the education bureaucracy more responsive to girls. The analysis of a nationally representative data set on senior high schools (SHS) within the 216 districts of Ghana revealed that increasing the presence of female teachers is positively associated with the performance of girls on math and science exit exams.     

How do interest groups legitimate their policy advocacy? Reconsidering linkage and internal democracy in times of digital disruption

The ongoing embrace of interest groups as agents capable of addressing democratic deficits in governing institutions is in large part because they are assumed to contribute democratic legitimacy to policy processes. Nonetheless, they face the challenge of legitimating their policy advocacy in democratic terms, clarifying what makes them legitimate partners in governance. In this article we suggest that digital innovations have disrupted the established mechanisms of legitimation. While the impact of this disruption is most easily demonstrated in the rise of a small number of ‘digital natives’, we argue that the most substantive impact has been on more conventional groups, which typically follow legitimation logics of either representation or solidarity. While several legacy groups are experimenting with new legitimation approaches, the opportunities provided by technology seem to offer more organizational benefits to groups employing the logic of solidarity, and appear less compatible with the more traditional logic of representation.     

Exploring a Model of HIV Prevention Using a Cognitive-Behavioral Skills-Building Framework with Black Immigrants

Abstract

This paper addresses the burgeoning Human Immunodeficiency Virus (HIV) crisis in the black community in the United States, particularly black women. A cognitive-behavioral skills-building HIV prevention intervention tailored to the realities of blacks in South Africa is presented as a model that may be modified and adapted for HIV prevention among blacks in the United States. This model of HIV prevention must view blacks as a heterogeneous group that includes African immigrants, and cognitive-behavioral skills-building HIV prevention interventions tailored to the realities of black women are needed for the prevention of heterosexually transmitted HIV infection. The implementation of HIV interventions within accessible sexually transmitted diseases (STD) testing and treatment programs will provide the combined clinical-behavioral approach that is missing in HIV prevention interventions among blacks in the United States.     

Toward a Pragmatic Model of Public Responsiveness: Implications for Enhancing Public Administrators’ Responsiveness to Citizen Demands

Public responsiveness, or bureaucratic responsiveness to citizen demands, is central to public administration theories. It is a key concept regarding the appropriate role of bureaucracy and professional administrators in a democratic political system. By exploring the complexity of the concept, this article proposes a pragmatic model as an alternative to the two mainstream models of understanding public responsiveness. The theoretical implication of the pragmatic model is also discussed. Future research should address administrators’ instrumental concerns in fostering public responsiveness.     

Expanding the theoretical boundaries of active representation: Clients' deservedness of service in the 911 emergency system

The objective of this study was to explore how emergency responders' experience, beliefs and organizational context influence their decision-making processes and their interaction with their clients. The study includes 27 interviews with 911 emergency responders to unveil the underlying factors which lead responders to act in favour of some of their clients, that is, actively represent them, while limiting their representation of others. The study is situated at the intersection between the street-level bureaucracy and representative bureaucracy literatures. Building on symbolic representation, this study argues that active representation is shaped by factors beyond mere socio-demographic characteristics and organizational or group identities. By focusing the analysis on the attitudes of the bureaucrats themselves, this study provides initial evidence to support Meier's recent hypotheses in his micro-theory of representative bureaucracy.     

Minorities and the public service: a future perspective

This paper analyzes the future prospects of blacks and other minorities in the public service. It examines studies on race/role expectations of minority administrators, tokenism and marginality to discern trends in interethnic relations. It also discusses future demographic projections and their implications for majority/minority relations. Finally, the essay explains why public service careers are particularly significant for blacks and other minorities.