Unpacking the Bureaucratic Representation–Legitimacy Relationship in International Organizations: The Role of Elite Beliefs and Self-Legitimation Practices

Abstract

Abstract The link between bureaucratic representation and the perceived legitimacy of international organizations (IOs) is often cited in the literature. However, we do not know exactly how this works empirically. In this article, I introduce two variables to better understand the bureaucratic representation–IO legitimacy relationship: elite beliefs about geographical representation and self-legitimation practices. The theoretical framework bridges the literature on IO legitimacy in international relations and the literature on representative bureaucracy in public administration. Based on the case of the United Nations Secretariat and semistructured interviews with staff members, human resources experts, and member state representatives, the qualitative analysis points to two conclusions. First, this article presents the various representative bureaucracy–related legitimation practices employed by the bureaucracy at the discursive, institutional, and behavioral levels. Second, bureaucratic representation is perceived as a democratic, fair, and technocratic source of legitimacy by member state representatives. This article adds to the empirical study of IO legitimacy and to recent studies on representative bureaucracy in IOs.