Governments are facing increasing demands for discretion by ‘street-level bureaucrats’ (SLBs) in public service delivery. This challenge is magnified by shifting policy landscapes, evolving citizen expectations and changing governance frameworks. SLBs are frontline staff who interact with the public every day and can exercise a significant degree of discretion and choice in their daily work.
They are responsible for translating policy into the delivery of programs and services. An article in Public Management Review discusses the role of discretionary practices by SLBs and how individual decision making is used in their work with citizens.
Street level bureaucrats and discretion
SLBs are public service employees who interact directly with the public, often at the frontline of government policy implementation. They are responsible for translating policies into real-world actions and services. They include social workers, teachers, police officers, nurses and child protection workers. SLBs are the point of contact for many citizens with government, shaping their perceptions and experiences of public services. Their actions determine how policies are actually applied, which can also differ from the way they were originally intended.
SLBs have a measure of discretion around their decisions, and can make an impact on the lives of many people. This is seen as one of the defining characteristics of SLBs.
The role of professional knowledge in decision making
The evolving role of SLBs necessitates the development of new professional skills and learning practices. Reflective practices are essential for SLBs to balance their increased discretion with ongoing decisions, ensuring a focus on value creation for citizens. This paradigm shift emphasises the importance of continuous professional development and developing skills that enable SLBs to navigate complex, value-oriented public service environments effectively.
Professional knowledge in frontline work involves a combination of specific expertise related to the profession and the ability to apply this knowledge in practical, real-world situations. This knowledge is not merely theoretical; it encompasses the concrete experiences gained while interacting with clients, patients or citizens.
The use of knowledge in discretionary decision-making is crucial. SLBs often face unique situations that require them to make judgements based on their understanding of general principles and their specific experiences. This ability to reflect on the relationship between theoretical knowledge and concrete experience allows professionals to exercise their judgement effectively.
This becomes a type of situational knowledge that enable SLBs to navigate complex situations where they face uncertainty, as well as multiple and ambiguous goals. The ability to exercise discretion is crucial in this environment as SLBs must adapt their approaches based on the evolving dynamics of their interactions with clients. For instance, a SLB may need to change an intervention approach in the middle of an intervention if new information arises, such as discovering a client’s challenging background or if the client’s situation regarding housing, job or health conditions suddenly changes.
As such, flexibility is essential in frontline work to respond effectively to diverse and changing situations. It involves being open to new information, adapting strategies as needed and continuously reflecting on and improving practices. In this environment, rigid adherence to rules may not lead to desired outcomes, such as trust responsiveness, and compliance. SLBs must adapt their approaches based on the context and the needs of those they serve. By leveraging their professional knowledge and understanding of the social realities affecting clients’ behaviours and dispositions, they can make informed decisions that consider both the individual circumstances of their clients and the broader guidelines of their profession.
Managing the use of knowledge
Managing the use of knowledge in frontline discretionary decision-making involves several aspects, including:
- organising professional judgement as a collective as well as an individual practice
- setting up a system of knowledge management which remains flexible by allowing for control and autonomy, and
- promoting a reflective learning culture.
Managing discretion beyond rules also involves knowledge management within the organisation to enable effective use of both shared experiential knowledge as well as professional expertise. Yet the task to manage knowledge often takes place in a SLB context where workers operate under external controls such as result-based management systems or systems with weak incitements to collaborate across vertical lines.
While these systems aim to ensure accountability and standardisation, they can sometimes limit professional autonomy. Governance systems can sometimes lead to unintended consequences like checklist behaviour or tunnel vision, where SLBs focus too narrowly on measurable outcomes at the expense of broader professional judgment.
The bottom line
Professional knowledge can balance adherence to organisational goals with the need for responsive and individualised care in frontline work. Managing the use of knowledge in discretionary decision-making involves fostering an environment where discretion is recognised and valued as a professional judgement beyond rule compliance, and where continuous reflection on decision-making and working practices is facilitated.
Want to read more?
Public management and street-level bureaucrats – Flemming Larsen, Marie Østergaard Møller and Nadine Raaphorst, Public Management Review, April 2025
Each fortnight The Bridge summarises a piece of academic research relevant to public sector managers.
Past Research Briefs on the importance of frontline public sector workers include:
- Published Date: 7 May 2025