A study on implementation gaps in age-friendly renovation policies : a case study in Guangzhou

As the global population ages rapidly, addressing the increasing needs of elderly citizens has become a pressing concern. To respond to the aging problem, China has recently seen a surge in age-friendly renovation policies. However, there is a significant gap between policy execution and policy objectives, with local implementation facing substantial challenges. This study focuses on investigating the implementation of age-friendly renovation policies in Guangzhou, a city facing significant challenges in this regard. The central aim of this thesis is to identify: why have age-friendly renovation policies failed to meet policy expectations at the implementation level, and what are the underlying reasons? The analytical framework of this study is customized to analyze Chinese social policies, based on an extensive review of policy implementation theories and adapting Smith's policy execution model to fit the characteristics and background of policy implementation in China's political context, particularly focusing on age-friendly renovation policies. Using a case study method, the research explores the policy development and implementation process in Guangzhou, employing document analysis, field observations and interviews from five residential communities over a two-year period starting from May 2022. The study's data sources are diverse, including program documents, semi-structured interviews with staff from the Elderly Comprehensive Service Center and neighborhood committee officials, indepth interviews with elderly groups, and random community interviews and observations of interactions between program staff and clients. The collected data were processed using both quantitative tables and qualitative analysis methods. After a preliminary understanding of the current status of age-friendly renovation policy implementation in Guangzhou, combined with theoretical frameworks and analytical theories, the study uncovers several key findings influencing policy implementation effectiveness: 1.Policy Confusion and Mistakes: Ambiguities in policy content and objectives lead to distorted implementations and inconsistent standards, limiting policy reach and effectiveness. The lack of coordination further exacerbates these issues, hindering effective coverage. 2.Organizational Barriers: Vertical and horizontal organizational structures create communication breakdowns and inertia, impeding effective policy implementation. Limited resources and unclear roles contribute to confusion and inefficiencies. 3.Street-Level Bureaucrat Inefficiencies: Street-level bureaucrats struggle with understanding policy objectives and exercising discretion, resulting in inconsistent and ineffective implementation. Inadequate oversight and incentives diminish their motivation and performance. 4.Target Group Issues: Ambiguous policy parameters and public skepticism reduce policy effectiveness and reach. Insufficient promotion and bureaucratic hurdles further frustrate the target demographic, impeding successful implementation. In synthesizing the study's conclusions with its implications, the thesis presents a suite of recommendations.At the national level, it suggests correcting policy orientation, emphasizing community governance, defining clear leadership and responsibilities, and enhancing policy feedback mechanisms. For Guangzhou, it recommends prioritizing aging-in-place policies, establishing unified review standards, increasing awareness of age-friendly renovations, strengthening community governance, and fostering industrial synergy. The theoretical contribution of this study lies in refining and contextualizing Smith's policy implementation model to align more closely with the Chinese policy environment. It extends the theoretical framework of policy research by addressing the historical predominance of theories originating within developed country contexts and broadens the applicability of policy implementation theory to settings in developing countries. Specifically, the research enriches understanding by focusing on execution dynamics within China's centrally governed but locally empowered administrative structure. It emphasizes the pivotal roles of implementers within organizations, clarifies the concept of 'policy texts,' highlights the role of street-level bureaucrats in oversight and incentive moderation, and underscores the importance of active engagement by the target group. It offers a nuanced analytical framework for examining age-friendly renovation policies alongside strategies for the distribution of social welfare.