How Patronage Delivers: Political Appointments, Bureaucratic Accountability, and Service Delivery in Brazil

The political appointment of bureaucrats is typically seen as jeopardizing development by selecting worse types into the bureaucracy or by depressing bureaucratic effort. I argue that political appointments also affect outcomes through a third, less studied channel, namely, by changing how bureaucrats work. Patronage provides connections between bureaucrats and politicians, and thereby grants access to material and nonmaterial resources, enhances monitoring, facilitates the application of sanctions and rewards, aligns priorities and incentives, and increases mutual trust. Political appointments can thus enhance bureaucrats' accountability and effectiveness, not just for rent-seeking purposes but also, in certain conditions, for public service delivery. I test this theory using data on Brazilian municipal governments, leveraging two quasi-experiments, two original surveys of bureaucrats and politicians, and in-depth interviews. The findings highlight the countervailing effects of connections on bureaucratic governance in the developing world.