Street-level bureaucracy in weak state institutions: a systematic review of the literature

Abstract

The study of street-level bureaucracy has been dominated by research from the Global North. Mainstream conceptualizations are, therefore, based on observations from institutional contexts that may vary significantly from the working conditions of frontline workers elsewhere. This article takes stock of the growing body of literature on street-level bureaucracy in weak institutional contexts and brings together relevant insights from comparative political science and public administration into a coherent analytical framework. We identify four institutional factors that shape frontline working conditions and three behavioral patterns in frontline worker agency. These patterns in frontline agency – ranging from policy improvisation to informal privatization – can be understood as an institutional waterbed effect caused by institutional deficiencies, such as resource scarcity and accountability gaps: if the complexity of public service provision is not tackled at the institutional level, it is pushed towards the street-level where frontline workers cope with it in highly diverse ways. Points for practitioners Frontline workers in weak state institutions are commonly faced with highly precarious working conditions. If the structural preconditions for policy implementation and rule enforcement are unresolved, these complexities are pushed towards frontline workers that cope with them through informal privatization, policy improvisation, or alienative commitment focused on mere job survival. Frontline agency is an indispensable factor for understanding the selective and often distributive nature of service delivery and rule enforcement in the Global South.