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Drawing on institutionalism supplemented by a micro-political perspective, this study explores how a bilateral development agency’s (BDA’s) regional office manages institutional multiplicity, a situation where organisations are embedded into the institutional environments of their headquarters and multiple host countries.

I remotely conducted semi-structured in-depth interviews with 20 staff members of a BDA’s regional office in South-East Europe. Reflexive Thematic Analysis was used to analyse the interview data.

Two themes are developed. One is an institutional decomposition strategy. The subject office decomposes institutional multiplicity into more manageable multiple institutional dualities by deploying local representatives to host countries. The other is the division of duties to demonstrate legitimacy. The division designates who in the office demonstrate legitimacy in which institutional environment. These proactive actions by the office (i.e., the decomposition and the division) question the institutionalist assertion that external institutional conditions determine organisational behaviour.

The findings may not directly apply to other public sector organisations because BDAs’ overseas offices are “donors” for their host countries. In addition, themes developed in the context of South-East Europe may not be generalisable to other regions.

BDA staff members should understand that institutional decomposition through the deployment of local representatives is a rational strategy to deal with complex conditions of institutional multiplicity. They should also understand that experienced local representatives are required to achieve this strategy.

This is the first empirical study to examine how a public sector organisation’s regional office manages complex institutional multiplicity from a micro-macro combined perspective.

Prior institutional duality research asserts that ceremonial implementation of organisational practice protects multinational corporations’ subsidiaries. However, the temporal dynamics of the safeguarding function has been under researched. Public sector organisations have also been ignored. This research aims to explore how the safeguarding function is created, maintained and disrupted using the overseas offices (OOs) of a bilateral development agency (BDA) as a case.

A multi-case study, underpinned by neo-institutionalism, was conducted. Data obtained from in-depth remote interviews with 39 informants from the BDA OOs were analysed using the “asking small and large questions” technique, four analytical techniques, cross-case synthesis and theoretical propositions.

A three-phase process was identified. The first phase is the appearance of discrepancies due to institutional duality. The second is the emergence of ceremonial implementation as a solution. In the third phase, “the creation, maintenance and disruption of a safeguarding function” begins. When ceremonial implementation successfully protects the OOs, the safeguarding function is created. The OOs are likely to repeat ceremonial implementation, thus sustaining the function. Meanwhile, when conditions such as management staff change, ceremonial implementation may not take place, and the safeguarding function disappears.

The BDA OOs may not face strong host country regulative pressures because they are donors to aid-recipient countries. Hence, the findings may not directly apply to other public sector organisations.

Development cooperation practitioners should understand that ceremonial implementation is not exclusively harmful.

To the best of the author’s knowledge, this is the first institutional duality research that explores the temporal dynamics of safeguarding functions targeting public sector organisations.