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Studies of representative bureaucracy frequently reference the need for a critical mass before an underrepresented group can influence policy outputs or outcomes, but the empirical literature is modest and presents mixed findings. This article presents a theoretical exploration to illustrate how critical mass can link individual behavior to organizational contexts. By examining both active representation and symbolic representation at both the individual and organizational level and specifying the different microprocesses of active representation, a series of testable hypotheses are presented. The logic suggests that the concept of critical mass might also be a useful contextual variable to examine other aspects of administrative behavior. Based on the theory, two empirical illustrations from China are presented. [ABSTRACT FROM AUTHOR]

Bureaucracies representative of the public can affect programme outcomes either through active representation by bureaucrats or symbolic representation via changes in client behaviour. Separating out these different aspects of representation requires understanding the interaction of bureaucrats and clients which is difficult using only quantitative data. Using individual-level quantitative analysis of Chinese education data, we find gender representation exists. Qualitative interviews of teachers, students and school principals, however, indicate that the effects are most likely not from active representation but rather via the symbolic representation through role-model effects. [ABSTRACT FROM AUTHOR]