Functionaries: Institutional Theory without Institutions

Abstract

In conceptualizing institutions, theorists tend to resort to conceptual metaphors of ᴄᴏɴᴛᴀɪɴᴇʀs or sᴜʙsᴛᴀɴᴄᴇs. We argue these construals are responsible for difficulties analysts encounter in conceptualizing the sources and mechanisms behind institutional change. We propose ᴅɪsᴛʀɪʙᴜᴛɪᴏɴ as a more effective foundational metaphor for institutional analysis. From this perspective, institutions are conceived as non-random dispersals of activity and knowledge across people and not as containers encasing persons or substances endowed with an essence. Most of a population may know how to take interactional advantage of an institution but few know how to keep institutions going and are therefore usually powerless to change them. This means those who do have the requisite operational knowledge and engage in the required upkeep activities, whom we refer to as “functionaries,” play pivotal roles in institutional change and reproduction. We revise theories of institutional entrepreneurship around the role of functionaries, and distinguish between two ideal types of institutional change.

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