Persistence of bureaucratic over-representativeness or under-representativeness: experience of the civil service in Malaysia

Abstract

What contributes to the persistent nature of bureaucratic over-representativeness or under-representativeness? Answers to such a question are necessary because, while there have been many empirical studies of the relationship between different types of bureaucratic representation (gender, ethnic, class) and/or different features of bureaucracies (levels, types of agencies, unitary or federal) and possible policy outcomes, the studies have largely been silent when it comes to identifying antecedents to bureaucratic over-representativeness or under-representativeness. Accordingly, by studying Malaysian experience involving a largely mono-ethnic bureaucracy in a highly plural and fragmented society, this discussion identifies factors that have contributed to the persistent nature of an under-represented and over-represented bureaucracy. The underlying findings are that there is a need to move away from a monolithic argument that mono-ethnic representation of the bureaucracy is solely due to a state’s interventionist policy, and that the stickiness of administrative tradition, perception, socialisation and attractiveness of alternative sectors of employment can contribute to the persistent nature of bureaucratic representation.

Keywords:

• representative bureaucracy
• under-representativeness
• over-representativeness
• civil service employment
• private sector employment
• administrative tradition
• socialisation
• Malaysia

Acknowledgement

The invaluable contribution of the interviewees to this study is gratefully acknowledged.

Disclosure statement

No potential conflict of interest was reported by the authors.

Notes

1. Details on the interviews and questions posed are referred to in the text below. Other matters concerning them, including the coding of the responses, are available from the corresponding author.

2. For present purposes, three questions were posed to the officers. The interviews were conducted as part of a larger project on work motivations among civil servants in Malaysia, with the questions being among a larger set of questions designed to provide a comprehensive view of motivations that have guided officers’ choice of employment. Follow-up questions were posed in addition to the three questions.