This article examines the ability of social accountability to spur gradual institutional change at the municipal level, using the case of citizen oversight agencies (COAs) for police agencies. Using the gradual change framework and the social accountability framework to guide the empirical strategy and data collected through an original survey of COAs, the authors test the impact of COAs on institutional outcomes in policing. We find that, in accordance with the gradual change framework, the degree to which a COA reduces racial disparity in policing outcomes depends on its scope of authority and the degree of discretion afforded by existing institutions to police officers. In general, the wider the scope of authority, and the broader the discretion afforded by existing institutions, the greater the likelihood of change in institutional outcomes.

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Cultural contentiousness is defined as an attribute of innovation due to which it encounters resistance because of its incompatibility with hegemonic cultural assumptions. I argue that culturally contentious innovations are likely to be adopted when antecedents have productive symbolic force, i.e., they reveal contradictions between dominant cultural assumptions and the material outcomes of existing institutions or empower social actors to resolve such contradictions. However, antecedents with incapacitative symbolic force tend to obfuscate the above contradictions or decrease social actors’ capacity to resolve them, encouraging the adoption of less contentious innovation. Applying these arguments to citizen oversight agencies (COAs) for the police, I examine the antecedents of contentious (i.e., investigative) as opposed to less contentious (non‐investigative) COAs. In support of the above argument, I find that productive antecedents (e.g., a consent decree, an increase in civil rights nonprofits) are associated with adopting investigative COAs. In contrast, incapacitative antecedents (e.g., a Law Enforcement Officer Bill of Rights, an increase in the violent crime rate) are associated with adopting non‐investigative COAs. The findings broadly demonstrate that policy adoption scholars ought to distinguish policies in terms of cultural contentiousness and account for the symbolic force of antecedents. Further theoretical contributions are discussed.

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