Bureaucracy, Democracy, and Race: The Limits of Symbolic Representation
Background
Representative bureaucracy theory suggests that when public organizations reflect the demographics of the communities they serve, this passive representation can enhance legitimacy and improve outcomes. One proposed mechanism is symbolic representation, in which public cooperation and engagement increase because the bureaucracy is perceived as more legitimate.
Purpose
This study develops a micro-level theory of symbolic representation, arguing that the benefits of demographic representation depend on the quality of interactions between bureaucrats and the public. The theory is illustrated using qualitative interviews conducted in two cities with large populations of people of color and high proportions of police officers of color.
Outcome
The findings show that demographic representativeness alone does not guarantee improved relationships between the public and the bureaucracy. Symbolic benefits emerge only when representation is accompanied by positive treatment from bureaucrats. The study demonstrates that increasing diversity within public organizations is necessary but not sufficient for strengthening democratic legitimacy and public trust.