Digital governance in Qatar: navigating the paradox of digital bureaucracy

Purpose This paper aims to introduce and theorize the concept of “complex digital bureaucracy” to explain the paradox of Qatar’s digital transformation: the coexistence of advanced digital infrastructure with persistent bureaucratic inefficiencies and limited participatory governance. Design/methodology/approach This study draws on 38 semistructured interviews with government officials, private sector representatives, third sector actors and citizens. It uses qualitative thematic analysis to examine how institutional fragmentation, legal ambiguity and restricted civic engagement constrain Qatar’s shift from e-government to integrated digital governance. Findings The findings reveal that, rather than dismantling hierarchical structures, digital systems often reproduce them by centralizing control, entrenching siloed practices and excluding third sector actors from co-production. This paper demonstrates that digital governance requires more than technological adoption; it demands structural, legal and cultural reforms. Research limitations/implications This study is limited to qualitative interviews conducted in Qatar between February and March 2025, which may constrain generalizability. While findings offer rich insights into digital governance in rentier states, they may not fully capture experiences in more pluralistic or low-capacity contexts. Future research could use comparative case studies and quantitative measures to assess whether “complex digital bureaucracy” applies across diverse political economies. Despite these limitations, this paper provides a valuable conceptual tool and highlights the need for integrated approaches to digital governance that move beyond technology-centric explanations. Practical implications For policymakers, this study underscores the necessity of addressing institutional fragmentation, clarifying legal frameworks and promoting interagency interoperability to achieve effective digital governance. Recommendations include developing unified regulatory bodies, enhancing cross-sectoral collaboration and embedding participatory mechanisms for citizens and civil society. By reframing digital transformation as an institutional rather than purely technological project, the paper provides actionable strategies for governments seeking to maximize the benefits of digital tools while avoiding the reproduction of bureaucratic inefficiencies. These insights are particularly relevant for rentier states undergoing rapid modernization. Social implications This research highlights how digital governance models shape citizen–state relations in high-capacity contexts. In Qatar, restricted civic participation and limited inclusion of third sector actors reduce opportunities for public accountability and co-production, contributing to a perception of top-down modernization. The persistence of bureaucratic silos in digital form risks reinforcing social distance between state and society, particularly among youth and civil society groups. By emphasizing participatory reform, the study suggests pathways toward more inclusive digital governance that can strengthen trust, responsiveness and social cohesion in rapidly modernizing states. Originality/value In offering a new theoretical lens and empirical evidence from a high-capacity state, the study contributes to international debates on digital bureaucracy, platform governance and rentier state modernization. The analysis highlights how digital transformation can either reinforce or reform bureaucratic power, providing lessons for digitally ambitious states seeking participatory and accountable governance.