Race, Locality, and Representative Bureaucracy: Does Community Bias Matter?

Abstract

Despite burgeoning research on representative bureaucracy theory, there is limited examination of how environmental contexts shape the manner in which the demographic makeup of a bureaucracy is linked to distributional bureaucratic outcomes. Scholars in the field of social psychology, however, have suggested that community-level variation in the pervasiveness of biases against particular social groups helps to explain inequitable outcomes in such diverse settings as education, policing, and health care. Incorporating social psychology research into representative bureaucracy theory, this paper examines how community racial biases shape the association between the demographic makeup of an organization’s personnel and its bureaucratic outcomes. Using county-level implicit and explicit bias measures that are estimated by multilevel regression and poststratification (MRP) based on a dataset containing more than 1.2 million respondents, we find that more inequitable educational outcomes occur for Black students in counties where White residents hold stronger anti-Black biases. Our findings also suggest that while Black teachers are associated with more favorable outcomes for Black students in the zero-sum context of assignment to gifted classes, the association of outcomes with passive representation is more limited in counties with strong racial biases. By accounting for the racial biases exhibited in the communities where both clients and bureaucrats are socially and culturally embedded, this paper extends our understanding of how contextual factors shape the nature of bureaucratic representation.