Factors that shape the behavior of street-level bureaucrats in the public policy implementation process

Abstract

Implementation is the transformation of public policy objectives into concrete results delivered to citizens. The study of this process may be approached from the bottom-up or the top-down, or by some combination of these perspectives. From the bottom-up perspective, the frontline implementer (commonly called "street-level bureaucrat" in the literature on the subject), is regarded as a key element in the implementation process, due to his direct responsibility for policy execution. Thus, this article presents an analysis that addresses the work of this public servant during the implementation process, in order to systematize knowledge on the factors that influence how this work is carried out and indicate directions for further research. This analysis, based on survey and systematization of the literature on the subject, revealed that the behavior of a street-level bureaucrat is molded by personal, professional, managerial, and policy-related factors. The discussion of these factors is organized into six subsections: discretionary action; interaction with policy users; relations with the management system; accountability; self-interest; and standards, rules, beliefs, and values. In this sense, it was found that scientific research about the street-level bureaucrat is characterized by considerable fragmentation, with theoretical approach and focus of analysis varying in accordance with the interest of the respective researcher. Therefore, the article attempts to show how all of the different elements addressed in the literature are related and how they may affect the frontline implementer's behavior and the implementation process. Based on the analysis conducted, directions for further research are indicated.

Keywords:
Policy implementation; Street-level bureaucrat; Frontline implementer