The Complexity of Descriptive Representation and Bureaucracy: The Case of South Africa

Abstract

ABSTRACT This article uses the South African case to look at the concept of descriptive representation—an important element in the theory of representative bureaucracy. Considerable literature has examined the relationship between descriptive representation, or the number of members of an identity group that are present in a public sector organization, and active representation, the extent to which those representatives pursue the interests of those they are presumed to represent. Less studied is the descriptive representation side of the equation. Descriptive representation should not be seen as simply a matter of counting the numbers of members of identity groups in an organization. Rather, one should also ask whether the identity groups that are to be privileged for representation make sense. This article explores the extent to which challenges in identity formation and classification alter passive representation and the potential for active representation. We consider how those targeted for representation in the new democratic South Africa are defined and the tension and issues the definition has caused for the government's stated policy of achieving a representative public service.