When Representatives Work: The Influence of Local Context on Minority Representation
Date
2017-07-25
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Abstract
Representative bureaucracy theory often explains representation without a
discussion of agency context. However, in many agencies not only is there a lack of
support to develop a passively representative workforce, but there also exists little
support for active representation. Scholars have recently developed a theory of context
that describes various characteristics of the organizational context as a conditioning
variable on management and performance. This research explores how agency contexts
will potentially improve or mitigate the effect of minority representation on minority
student outcomes. The research addresses three contextual characteristics: the
organization’s financial uncertainty, the organization’s social context, and the
organization’s political context. I explore my research question in the context of U.S.
local public education. Within the research, I use a national survey dataset that captures
bureaucratic representation in the largest U.S. school districts, funding data provided by
the National Center of Education Statistics, and a unique dataset on school district social
capital. The findings indicate first that in the midst of financial stress, negative changes
in revenue dedicated to the technical core of the school district (instructional
expenditures) will decrease the expected impact of minority teachers on student
outcomes. Likewise, increases in bureaucratic investment will significantly improve the
ability of minority teachers to affect minority student outcomes. Next, although overall
levels of social capital are negatively or insignificantly related to minority social
opportunity and outcomes, minority teachers are increasingly effective when minority social capital can act as a co-productive facilitator for the bureaucracy. Last, this
research finds that minority bureaucrats are more effective representatives when various
political actors support their representative behaviors. The exact political control actor
differs by racial minority group. I conclude that minority representation is influenced by
various contextual characteristics within the local school district and addressing these
characteristics can potentially affect minority client outcomes in public programs.
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Keywords
Representative Bureaucracy, Public Management, Environmental Context, Education