Grassroots Organizational Capacity in Community Crisis Governance: A Case Study of Nanhai, China

Public health emergencies (PHEs) test the crisis response capacity of grassroots organizations like China’s Residential Committees (RCs). While existing research attributes this capacity to factors like resource mobilization or state-society relations, its deeper structural foundations in land regimes and spatial configurations remain underexplored, particularly in Global South urbanization contexts. To fill this gap, this study develops a “Grassroots Organizational Capacity” (GOC) analytical framework, which disaggregates capacity into four dimensions: information, implementation, mobilization and cooperation, and coercion. We then employ this framework in a comparative case study of urban (Jiayi) and rural (Hedong) neighbourhoods in Nanhai, China, during the 2022 lockdown. Drawing on semi-structured interviews with ten key stakeholders in 2022, the findings reveal divergent types of governance. In the rural case, collective land ownership and open spaces foster an “Embedded Autonomy” type, enabling a proactive response through dense social networks. In the urban case, state land dependency and spatial fragmentation lead to a “Reactive Co-Governance” type, which relies on top-down state intervention. This study’s contribution is to provide a case-based illustration of how land and space structures are actively associated with grassroots crisis response effectiveness, rather than serving as passive backdrops.