Digital transformations in public administration are increasingly reshaping organisational structures and work processes. While digital technologies are often seen as catalysts for increasing efficiency and reducing bureaucratic complexity, empirical studies show that these transformations can create new challenges (Mergel et al., 2019; Kuhlmann & Bogumil, 2021). From the perspective of organisational theory, which sees paradoxes as an inevitable and inherent aspect of such transformation (Kokshagina & Schneider, 2022), it is clear that digitisation in public administration generates tensions that affect both the organisation as a whole and individual behaviour. Individual-level paradoxes refer to recurring tensions in specific contexts (Mazmanian et al., 2013). These individual-level paradoxes, such as those related to autonomy, interaction, and information, arise when workplace technologies drive organisational change and require individuals to adjust their behaviour to manage these tensions.
Similar patterns emerge in social and service administration, where digitalisation goes beyond automation and standardisation to require new skills and generate additional workloads. Previously less visible tasks, such as system implementation, training and the adaptation of existing procedures add to this complexity (Dreas & Klenk, 2021; Ruiz Ben, 2021; Gräfe et al., 2024; Justesen & Plesner, 2024).
While existing research in public administration has predominantly addressed the external dimensions of digitalization, such as its impact on public service delivery and citizen interaction (e.g., Zanker, 2019; Schwab et al., 2019), and the bulk of research on paradoxes has focused on private organizations, the internal dynamics – particularly the impact of digitalization on internal work processes and structures within central public administrations – remain largely underexplored (Klenk & Veit, 2025). Central public administrations, which play a key role in political governance, legislation, and policy implementation, are often described as status quo-oriented and resistant to reform (e.g., Veit, 2018, on federal administration). These resistance tendencies raise the question of how digitalisation affects such environments and whether the paradoxes of digitalisation, as discussed for private organisations, also play a role here.
This study addresses this gap by examining how senior civil servants perceive digital transformation within the internal workings of central public administrations. It aims to answer the question of whether senior civil service executives experience digital transformation as a relief or whether it leads to new complexities and burdens.
Using data from the Political Administrative Elite (PAE) Survey 2025, which collected insights from federal, state and federal agency senior civil service executives in 2025, the study analyses how digitalisation affects perceptions of workload, efficiency, and administrative burden. It also focuses on how demographic characteristics, individual task assessments, and hierarchical positions shape these perceptions.
Particular attention will be paid to the paradox of inclusion and exclusion as a function of the demographic characteristics and health status of senior civil servants It is hypothesised that executives who perceive themselves as vulnerable - such as those with caregiving responsibilities or chronic health conditions - will experience digitalisation primarily as a relief, particularly through the ability to work remotely. This flexibility could be seen as an inclusive opportunity to break down barriers for those with physical or family constraints. In contrast, executives with lower digital literacy or fewer digital resources may experience digitalisation as an additional burden, exacerbating exclusionary dynamics. This study thus highlights how digital transformation processes can present different opportunities and challenges for various executives, depending on how well they are integrated into the digital work environment.
Key variables include the perceived digitalisation index, the level of digital literacy (measured by self-reported digital skills), and vulnerability (based on demographic and health characteristics). Multiple regression models will be used to examine the relationships between these variables and executives’ perceptions of digitalisation. In addition, the study will consider moderating effects such as organisational role and individual task assessments to provide a nuanced understanding of how digitalisation affects executives in different administrative contexts.
Several challenges may arise during the research process, including the heterogeneity of the sample and bias in self-reported data. Institutional differences and varying exposure to digital technologies may also complicate the interpretation of results. These challenges are addressed through careful data cleaning, sensitivity analyses, and robust statistical methods to ensure reliable conclusions.
The results of this study contribute to a better understanding of the internal impact of digital transformation on central administrative structures. They provide empirical insights into whether digital technologies are perceived as tools for increasing efficiency within central administrative units or rather as a source of new administrative burdens. In addition, the study examines whether structural inequalities in central administration are exacerbated or mitigated by digitalisation. In doing so, the study contributes to research on digital transformation, bureaucracy, and the resilience of public administration in Germany.
