Unpacking the Role of Institutional Work in the Dynamics of Policy Legitimacy: The Case of Demolition Policy in China

Maintaining policy legitimacy has become increasingly complex amid shifting historical contexts and evolving public perceptions. Drawing on a longitudinal analysis of China’s demolition policy (1991–2021), this study traces its legitimacy trajectory—from limited legitimacy to legitimacy breakdown and, ultimately, to regained legitimacy. Adopting the theoretical framework of institutional work, the study examines how governments engage in maintenance work in response to public feedback to continuously construct policy legitimacy. This study makes three theoretical contributions. First, it identifies the evolutionary mechanisms of policy legitimation through cognitive reconstruction and value co-creation, which reestablish institutionalized negotiation between the state and society. Second, it highlights the role of symbolic strategies in policy re-legitimation, demonstrating how meaning-making processes dynamically align policy objectives with public acceptance. Third, it reveals the strategic reflexivity of institutional work, illustrating the adaptive and agentic capacities of governments in the ongoing reconstruction of legitimacy.