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<p>Global emergency governance prioritizes “efficient response and risk resilience,” yet a critical implementation gap persists at the grassroots level, where policy goals often fail to translate into tangible outcomes. Data from the United Nations Office for Disaster Risk Reduction indicates that 60% of global disaster losses (2015–2024) stem from delayed grassroots responses, a figure exceeding 80% in developing countries due to inadequate governance mechanisms. To address this gap, this study employs fuzzy-set Qualitative Comparative Analysis (fsQCA) within the Technology-Organization-Environment (TOE) framework to analyze 50 grassroots emergency policy documents (implemented 2019–2021) from China’s three major urban agglomerations (Yangtze River Delta [YRD], Pearl River Delta [PRD], Beijing-Tianjin-Hebei [BTH]). Focusing on institutional design completeness as a foundational precursor to practical effectiveness, two core findings emerge: (1) robust early warning and response capacity (YJ) is a universal necessary condition for high policy effectiveness across all regions; (2) four equifinal configurational pathways to effectiveness are identified, including an integrated administrative coordination pathway, a context-adaptive resource-consolidated pathway (with technology-empowered and organization-driven sub-models in the PRD and BTH, respectively), a grassroots capacity-building (culture-driven) pathway, and a resource-constrained basic response pathway. Theoretically, this study advances the TOE framework’s application in administration-led governance contexts by revealing context-specific configurational interactions of institutional factors. Practically, it provides region-tailored policy templates for translating institutional design into on-the-ground emergency governance efficacy.</p>

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Configurational pathways to effective grassroots emergency governance in China’s urban agglomerations: a fsQCA study based on the TOE framework

  • 期刊论文

  • 出版模式：

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  • 发表日期：

    2026年1月11日

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  • Zhiqiang Li,
  • Mengting Yang

摘要

Global emergency governance prioritizes “efficient response and risk resilience,” yet a critical implementation gap persists at the grassroots level, where policy goals often fail to translate into tangible outcomes. Data from the United Nations Office for Disaster Risk Reduction indicates that 60% of global disaster losses (2015–2024) stem from delayed grassroots responses, a figure exceeding 80% in developing countries due to inadequate governance mechanisms. To address this gap, this study employs fuzzy-set Qualitative Comparative Analysis (fsQCA) within the Technology-Organization-Environment (TOE) framework to analyze 50 grassroots emergency policy documents (implemented 2019–2021) from China’s three major urban agglomerations (Yangtze River Delta [YRD], Pearl River Delta [PRD], Beijing-Tianjin-Hebei [BTH]). Focusing on institutional design completeness as a foundational precursor to practical effectiveness, two core findings emerge: (1) robust early warning and response capacity (YJ) is a universal necessary condition for high policy effectiveness across all regions; (2) four equifinal configurational pathways to effectiveness are identified, including an integrated administrative coordination pathway, a context-adaptive resource-consolidated pathway (with technology-empowered and organization-driven sub-models in the PRD and BTH, respectively), a grassroots capacity-building (culture-driven) pathway, and a resource-constrained basic response pathway. Theoretically, this study advances the TOE framework’s application in administration-led governance contexts by revealing context-specific configurational interactions of institutional factors. Practically, it provides region-tailored policy templates for translating institutional design into on-the-ground emergency governance efficacy.