The ‘Trust Paradox’: How Micro-Level Interactions Shape State-Society Relations

In political science and public administration, trust is said to be a fundamental element in a democratic society, which defines the relationship between institutions and the general public. As it relates to the relationship between the state and society, trust between public servants and citizens is especially crucial, because their interactions at the micro level, somewhat determine the nature of the relationship between citizens and the state more generally. Existing studies on citizens’ perceptions of frontline/street level public servants reveal a puzzling dichotomy, oscillating between highly negative and overtly hostile to somewhat positive and empathetic. The purpose of this study is to articulate a mechanism explaining the paradoxical dual perceptions held by citizens. The research is based on data from several recent studies conducted in Israel, including in-depth interviews with about 250 low-income citizens, who are clients of public services, and about 300 froneline providers of public services. The insights gained from amalgamating these perspectives are profound. Citizens’ interviews revealed a plethora of concerns that align with existing literature. A pervasive sense of distrust was evident, with clients of public services, mainly from low-income populations, feeling uncared for, suspecting personal biases, and perceiving unfair resource distribution. Notably, clients were confounded by the denial of services without clear justification, particularly when they believed themselves entitled or were aware of others receiving such services. Conversely, the interviews with frontline providers of public services highlighted the pivotal role of informal resources. In previous studies, I posited that frontline providers of public services rely on personal, informal resources (IFRs) as a crucial trust-building tool, compensating for the inadequacies of formal resources. However, an integrated analysis of both citizents’ and providers’ perspectives uncovered a ‘Trust Paradox’: while the use of IFRs by frontline providers was intended to bolster trust, it ironically diminishes it, rendering the services provided precarious: unpredictable, inconsistent, and unreliable – resulting in less trust and greater hostility among their clients. This paper discusses the ‘Trust Paradox’ in detail, exploring its implications the provision of public services to citizens. It reflects on the balancing act that frontline providers of public services must perform, using informal resources to foster trust while simultaneously risking the stability and predictability of the services they provide. The findings underscore the need for a systemic overhaul to address the roots of this paradox and enhance the trustworthiness and reliability of public service delivery. By examining the ‘Trust Paradox’ through the dual perspectives of citizens and frontline providers, this study advances the understanding of micro-level interactions in the governance process and their macro-level implications for state legitimacy and democratic stability. These findings underscore the necessity of situating frontline service provision within the broader context of state-society relations and governance, highlighting how micro-level trust dynamics influence political perceptions, institutional legitimacy, and the resilience of democratic systems.