The Veil of Bureaucracy: How Officials Evade Partisan Politics in Participatory Settings

Abstract

In theory, participatory democracies are thought to empower citizens in local decision-making processes. However, in practice, community voice is rarely representative, and even in cases of equal representation, citizens are often disempowered through bureaucratic processes. Drawing on the case of a firearm discharge debate from a rural county’s municipal meetings in Virginia, I extend research about how power operates in participatory settings. Partisan political ideology fueled the debate amongst constituents in expected ways, wherein citizens engaged collectivist and individualist frames to sway the county municipal board (Celinska 2007). However, it was a third frame that ultimately explains the ordinance’s repeal: the bureaucratic frame, an ideological orientation to participatory processes that defers decision-making to disembodied abstract rules and procedures. This frame derives its power from its depoliticization potential, allowing bureaucrats to evade contentious political debates. Whoever is best able to wield this frame not only depoliticizes the debate to gain rationalized legitimacy but can do so in such a way to favor a partisan agenda. This study advances gun research and participatory democracy research by analyzing how the bureaucratic frame, which veils partisanship, offers an alternative political possibility for elected officials, community leaders, and citizens to adjudicate partisan debates.