Representative bureaucracy, role congruence, and Kenya's gender quota

This article examines the subnational determinants of descriptive representation. Agency managers may be hesitant to hire women uniformly across all localities if they perceive geographic variation in role congruence, or the degree to which a position's duties match gender roles. We expect managerial perceptions to affect hiring patterns even after the adoption of a gender quota intended to improve descriptive representation, as managers will differentially hire women to meet the quota in localities where they perceive role congruence to be highest. Evidence from Kenya's most important security agency after the adoption of a gender quota supports the theory. Broadly, this article shows that aggregate quotas are at risk of being implemented in a way that undermines the spirit of the law. Slack in oversight pushes implementation to subnational areas where managers perceive the quota will be least disruptive, and ultimately, have the smallest effects on passive, let alone active, representation.