The emergence of externally active representative bureaucracy, a narrative review

Figures & data

Table 1. Summary of key conceptual differentiators between concepts.

	Passive representative bureaucracy	Active representative bureaucracy	Citizen participation	Externally active representative bureaucracy
Object	Deliver public services and implement policies effectively, efficiently, equitably, and in a manner appropriate to the public concerned.	Actively reflect the diversity of the population within institutions and ensure that this diversity influences decision-making and public policy.	Involve citizens directly in the decision-making process	Broaden representation by groups outside the bureaucracy, improve effectiveness and efficiency through active participation
The role of citizens	Generally passive, citizens are mainly consumers of public services	Public servants, especially those from underrepresented groups, are encouraged to participate actively in decision-making.	Active citizens are involved in decision-making.	Active citizens and civil servants are seen as partners and collaborators in the decision-making process, not as consultants but as players from the inside.
The role of civil servants	Civil servants are key players in policy implementation	Public servants proactively engage with their communities and ensure diverse and representative perspectives inform policies.	Civil servants facilitate and support citizen participation	Civil servants act as facilitators and collaborators with citizens and other stakeholders
Main concerns	Efficiency, fairness, representativeness, responsibility	Policy accountability, public servant accountability, inclusion of diverse groups, and service efficiency	Citizen engagement, inclusion, empowerment, deliberation	Efficiency, inclusion, collaboration, transforming bureaucracy
Decision-making mechanisms	Largely dependent on institutional guidelines and regulations	Largely dependent on institutional guidelines and regulations	Depends on deliberation and consultation processes	Combining institutional guidelines and deliberative processes
Accountability	Mainly upwards, toward political decision makers	Shared with clear and measurable expectations regarding representation and policy outcomes.	Shared between citizens and the administration	To citizens and political decision makers alike
Transparency	Variable level, often limited by the need for operational confidentiality	Necessary for legitimacy and efficiency, with efforts to ensure that processes and decisions are accessible and understandable to all.	High, as a prerequisite for effective participation	High level of effective collaboration
Impact assessment	Focus on service efficiency and compliance with corporate standards.	Measured by the ability of policies to meet the needs of various groups and improve their satisfaction.	Evaluated in terms of the degree of citizen participation and the relevance of contributions to the decision-making process.	Judged by the quality of the citizen group’s involvement and influence on political reform.
Innovation process	Often limited by regulations and institutional tradition.	Encourages innovation in response to the needs of underrepresented groups but remains limited by administrative tradition.	Citizen participation can bring innovative perspectives but depends on the institutional will to integrate them.	Stimulate innovation by opening the bureaucracy to outside ideas and collaborating with nontraditional players.
Conflict Management	They are generally managed through formal administrative processes and hierarchical channels.	They are generally managed through formal administrative processes and hierarchical channels.	Involve participative resolution and consensus-building initiatives.	Dealt with external groups, using collaborative approaches to find mutually beneficial solutions.
Adaptability and flexibility	Rigid structures can hamper adaptability in the face of rapid change.	Structures remain rigid in rapid change, but sensitivity to social dynamics is heightened.	It depends on citizens’ ability to influence change and the responsiveness of bureaucratic structures.	Greater adaptability thanks to integrating diverse external perspectives and the ability to respond more rapidly to societal needs.
Performance measurement	Assessment based on the ability to deliver services according to guidelines, focusing on operational efficiency and financial management.	Analysis of the impact of public policies on the diversity of social groups and institutional responsiveness to specific needs.	Assessment of the quality and effectiveness of political decisions resulting from participatory processes.	The evaluation focused on integrating external input into policy design and reform, measuring the effectiveness of induced changes and their sustainability.
Inclusion, diversity, and representativeness	Monitoring of beneficiary demographic indicators to ensure equity of access to public services.	Measuring the proportionality of the minority group representation in decision-making processes and policy outcomes.	Assessment of the effective participation of various civil society groups and its influence on policy design and implementation.	Monitoring the impact of interactions with external entities on broadening representativeness and enhancing the value of minority voices in public policy-making

Table 2. Prospects and lines of research for externally active representative bureaucracy.

Research topics	Research questions	Assumptions
Challenge 1: Restoring trust
ICT and Active Representative Bureaucracy	How do ICTs influence representativeness and citizen participation in governance?	Integrating ICT into governance improves representativeness and civic engagement.
The Evolving Role of Bureaucrats	How are the roles of bureaucrats changing in participatory processes?	Bureaucrats actively engaging in participatory processes contribute to more inclusive and practical solutions.
Impact of Diversity on Inclusion and Equity	How does bureaucratic diversity impact the equity and effectiveness of sustainable development policies?	Greater diversity within bureaucracies leads to more equitable and effective policies for sustainable development.
Barriers to Citizen Participation	What are the main barriers to citizen participation in bureaucracies?	Systemic barriers to citizen participation limits the effectiveness and representativeness of bureaucracies.
Longitudinal Evaluation of Effects	What is the long-term impact of externally active representative bureaucracy on governance and citizen satisfaction?	Representative bureaucracy has a lasting positive impact on administrative governance and citizen satisfaction.
Issue 2: Managing Wicked Problems
Analysis of Public Policies in Response to Local and Global Problems	How does bureaucratic composition affect public policy in the face of complex local challenges, social cohesion, and climate crises?	An externally active representative bureaucracy is more effective in formulating responses to complex local problems, promoting social cohesion, and responding proactively to climate crises.
Innovative Models of Bureaucracy for Sustainable Development	What innovative models of bureaucracy promote sustainable development and social cohesion?	Innovative models of representative bureaucracy lead to more sustainable, cohesive, and effective public policies.