Group Representation in Local Bureaucracies

Abstract

This paper examines a variety of explanations for why some active groups are better represented in local bureaucracies than other active groups. An examination of 1397 group-agency relationships in 55 cities resulted in some tentative evidence supporting the following propositions: (1) The organizational structures of groups-their permanency, their cohesion, and their size—do not explain the level of group representa tion in local bureaucracies. (2) The behavioral characteristics of groups—"the public-regardingness" of their demands, the "effectiveness" of their leadership, and the "conventionality" of their style-partially explain variations in group representation. (3) Organizations composed primarily of blacks and especially of low-status citizens tend to adopt some ineffective behaviors—making private-regarding demands, using ineffective leadership, and adopting unconventional styles-which result in reduced representation. (4) The extent to which blacks are underrepresented in local bureaucracies is not fully accounted for by behavioral variables. Part of the underrepresentation of black groups may be due to continuing overt discrimination.