Into the Unknown: Conceptualizing the Experience of Uncertainty in Citizen–State Interactions

Abstract

Abstract It is often argued that uncertainty is an inherent characteristic of citizen–state interactions. It is therefore hardly surprising that many scholars of street-level bureaucracy have studied how frontline workers cope with and make discretionary decisions under uncertain conditions. However, citizens’ experiences of uncertainty have received limited attention in the street-level bureaucracy literature. This article argues that understanding citizens’ experiences of uncertainty is highly relevant because experiences of uncertainty are likely to affect mental well-being of individuals negatively. The article seeks to address this gap by building a conceptual framework for understanding and analyzing citizens’ experiences with uncertainty in state–citizen interactions based on theoretical insights from the existing literature and in-depth qualitative analysis of 20 narrative interviews with former coronavirus disease 2019 (COVID-19) patients and their relatives concerning their encounter with health authorities. The article proposes a conceptual framework that distinguishes between epistemic uncertainty and moral uncertainty. Epistemic uncertainty concerns uncertainty about empirical facts or knowledge. Moral uncertainty concerns uncertainty about values due to conflicting or competing norms and values. The article illustrates how these forms of uncertainty may arise before, during, and after citizens’ interaction with frontline workers.