I'm a bit confused by your reference to a "bureaucracy" in regards to PACE. My assumption is that the principal authors have been making the decisions and don't answer to anyone else. Who do you regard as the bureaucracy in this case?
The bureaucracy I see here is King's College. Whoever "owns" the data, it's very likely not the named researchers; it will be an institution. Before someone at level 5 of that institution's hierarchy can hand over that data, they need to know that there will be no comeback from levels 4, 3, 2, or 1. This can be as simple as knowing the Vice-Chancellor of King's had a discussion with the Vice-Chancellor of QMUL during which they agreed that the best policy was to tough it out, because they already got a bloody nose off the Information Commissioner last year over some other matter and these things count towards one's chances of a peerage. Note: I just made that up; I have no reason to believe that anything like that happened, but from the point of view of the person at level 5, it might as well be the case.
I used to be a bureaucrat. I signed off on stuff I didn't like. Everyone in a bureaucracy does. It's part of the deal. When people's consciences finally clash too hard with their loyalty to the organisation, you get leaks or whistleblowing, but even anonymous leaks are very dangerous, career-wise. The general motto is, "This, too, shall pass". Again, per my previous post, if every civil servant questioned every ministerial decision, nothing would ever happen, so the existence of this way of working is not, in itself, a bad thing; it's just that sometimes, it leads to bad things that have a real impact on people's lives. With luck, sometimes, a workaround can be found; but this is rarely obtained by a frontal assault, because the front door is always well defended.
Bit confused again. If the vote was 8 to 1 in favour of releasing the data, isn't it the 1 who has broken ranks and is rebelling? I take your point about what happens to whistleblowers but I don't understand why the majority wouldn't rule here.
First, just in case it wasn't clear: the existence of a vote among the researchers, and the current state of that vote, are both entirely hypothetical. And as I noted above, even if all 9 researchers wanted to release the data, they might not be able to swing it. But in any case, the dynamics of these situations are not about democracy and majority voting. They are about collective loyalty to the group(s) of which one is a member, which is an incredibly strong human instinct.
In this case, the group is the team that put together the data, and at some point said no to the first request for the data. From that point on, it becomes very hard for anyone to change their mind; and even if they do change their mind, they will know how hard it was, and will respect the difficulty that the others will be having. It is basically inconceivable that these nine people (again, to the extent that it's even their decision), having refused the data to Jim Coyne and others, will suddenly say "Oh, you know what, actually, here it is after all". Why? Because it would mean admitting that all of the cogently-argued (in their view) reasons in the rejection letter were all, to use a technical term, bollocks.
These are smart people. That believe that what they do, most days when they get to work, is rational. Their design decisions in the trial were rational, and the rejection letter they stood behind was rational. To admit that you have been fooling yourself is a very, very hard thing for people to do,
especially for the smart, rational people who become research scientists or university administrators.
So for anything to change in their position, something has to change
outside the current system. One example might be if the Science Minister, say, stepped in. (I don't have his number, unfortunately.) At that point, the researchers might say, well, he's taken responsibility, so it's no skin off our nose; they get to continue to believe that their refusal was rational, but he's given them a way out. They can go and have a pint and feel glad this is all over.