Digital Transformation, Administrative Burden, and Citizen–State Interactions: A Case of the Old Age Allowance Policy in China

ABSTRACT Administrative burdens vary significantly across agencies and communities, and digital government initiatives are proposed as potential solutions to reduce administrative burdens. However, disadvantaged groups, particularly seniors, face multifaceted challenges that digital technologies alone cannot fully resolve. This research, based on in‐depth interviews and grounded theory analyses, examines how frontline bureaucrats, citizens, and digital tools collectively contribute to administrative burdens. We use the case of the Old Age Allowance Policy (OAAP), which was introduced by the Chinese government to address the increasing demands of the rapidly aging population. We develop a theoretical framework conceptualizing administrative burdens as perverse effects of digital transformation, shaped by intricate interactions among citizens' conditions, bureaucratic discretion, and technological limitations. In response to these challenges, our study highlights the crucial role of the government in fostering a supportive environment that enables citizens to adapt effectively to digital transformation.