After being elected through quotas, how do female politicians navigate post-colonial and male-led bureaucracies, which continue to exert inordinate control over resource allocation for policy implementation? Despite a booming literature in the effects of gender quotas, we know little about how governance outcomes are shaped by interactions between politicians and bureaucrats, especially given bureaucratic cultures tend to be dominantly governed by men. In hierarchical administrative settings, village politicians need sub-district and district-level bureaucrats to implement policies, but these politicians do not have direct authority over the bureaucrats they rely on. When politicians cannot reward or sanction bureaucrats, what governs bureaucratic behavior and importantly, does it bias against women in politics?
I fill this gap by theorizing that where bureaucrats have more power than politicians, bureaucrats’ gender biases and career incentives lead them to help politicians who bureaucrats perceive to have the most political capital to support bureaucrats' own career goals–men from ethnic majority groups. Within the administrative hierarchy, mid-level bureaucrats seek to build a positive reputation amongst high-level political and bureaucratic principals to secure desirable job transfers. Bureaucrats' explicit and implicit biases about women's low competence, low ability to mobilize citizens, and poor networks with high-level politicians lead them to discriminate against female politicians. I show that this dynamic leads to female politicians experiencing nearly 8 percentage points higher bureaucratic resistance—where bureaucrats refuse to help them with requests—than men.
I provide support for this theory with interviews conducted during five months of fieldwork in the Indian states of Telangana and Andhra Pradesh. I then provide both descriptive and causal evidence of explicit and implicit bureaucratic bias against female politicians using a conjoint experiment, an implicit association test, and descriptive data from a survey of mid-level, sub-district bureaucrats in the state of Telangana (n=253). Next, I provide evidence from a phone survey of village-level politicians (n=1,016) in Telangana to show that female politicians are significantly less likely to report receiving help from these bureaucrats than male politicians. Lastly, I turn to a natural experiment that tests the size of the real-world resource penalties that women politicians incur because of bias. While I do not find significant gender differences across men's and women's constituencies for the outcomes I study for the Mahatma Gandhi National Rural Employment Guarantee Scheme, I use survey data to suggest policy areas where these penalties may exist for future research.
While the growing literature on gender and politics elucidates how voters and political parties act as gatekeepers to women's political advancements, this dissertation project provides the first theoretical and empirical account of how bureaucrats can undermine the success of female politicians. It further demonstrates the detrimental consequences of the bureaucracy not only on women’s career trajectories, but also on the constituencies they govern.