When policy words and actions part ways
What looks coherent on paper may feel very different to the companies affected by it. After successfully defending her double degree PhD, Jing Jillian Wang finds that credible policy delivery is more closely linked to innovation than matching political language.
Local policy documents may closely follow national ambitions. But does that mean companies experience policy as clear, credible and stable?
This question is at the centre of Jing Jillian Wang’s research on China’s national high-tech zones. She completed SDC’s master’s programme in Public Management and Social Development before continuing to a double-degree PhD at Copenhagen Business School and the University of Chinese Academy of Sciences.
She wanted to challenge a mainstream view of Chinese policymaking that underplays how local governments adapt national priorities to local conditions.
‘The mainstream view is that the central government develops a five-year plan, local governments make their own plans, and the high-tech zones simply follow this hierarchy. But local governments play a much more important role. They are responsible for local jobs, education and healthcare, so they have to consider local conditions. That is why I wanted to dig into this area and show a different voice from the mainstream,’ she says.
When similar documents lead to different realities
National priorities are set by the central government. Local governments then develop their own plans, and high-tech-zone authorities adapt and communicate them to companies.
Jing Jillian Wang introduces two concepts to examine what happens as policy moves through these levels.
Rhetorical coherence describes whether documents at different levels reflect the same priorities and use similar language, making the policy chain appear aligned on paper.
Delivery coherence concerns what reaches companies. It examines whether local authorities communicate commitments clearly and consistently, so companies understand the priorities and whether the policy direction will remain stable.
Two national high-tech zones may therefore publish similar policy documents, while companies in only one experience the commitments as credible and lasting.
‘I am very proud that I developed this distinction myself. Previous research has divided policy coherence by time or by stages of policymaking, but I wanted to distinguish between policy language and what is actually delivered. Two places can use very similar words in their documents while creating very different conditions for companies.’
Tracing policy from documents to companies
Jing Jillian Wang studied 27 national high-tech zones between 2013 and 2023. She examined 987 policy documents and used computer-assisted text analysis on 8,641 official news articles.
She compared these measures with data from 2,681 companies. Her case study in Zhongguancun Science Park included 46 policy documents, 18 interviews and observations across several sub-parks.
She used companies’ applications for invention patents as an indicator of innovation. She also innovatively used both Chinese- and global-scale patent databases, as well as innovation output data, for robustness checks.
‘Rhetorical coherence did not significantly promote innovation among the companies. Delivery coherence, on the other hand, significantly improved their innovation performance. In other words, actions speak louder than words.’
Delivery becomes visible when local authorities follow policy announcements with measures such as funding innovation programmes, paying subsidies, providing infrastructure and explaining how companies can access support. Companies can then judge whether promised resources arrive and remain available.
The relationships also differ by ownership. For private companies, stable policy communication can reduce uncertainty around long-term investments. For state-owned companies, high rhetorical coherence is associated with less innovation. The dissertation suggests that pressure to demonstrate political alignment may leave fewer resources for innovation.
The Zhongguancun case shows that the same national direction can produce different local paths. Haidian developed around universities and knowledge production, Changping around industrialisation, while Fengtai combined established industries with emerging technologies.
This shows why successful innovation policy cannot simply be copied from one region to another. Local industries, institutions, networks and resources influence what can work in practice.
Her dissertation therefore argues that policy coherence should be evaluated not only by comparing documents, but also by asking whether companies receive clear and credible evidence that policy commitments will be followed through, allowing them to plan and invest with greater confidence.
A PhD shaped by two research environments
With the defence behind her, Jing Jillian Wang can look back on a research journey across two universities.
At CBS, courses and discussions introduced her to organisational institutionalism, which became central to the dissertation. UCAS provided the institutional platform, funding and access to Chinese policy material and fieldwork.
‘I have often asked myself whether I could have completed this PhD without either the Danish or the Chinese side. My answer is no. They have equal importance. The Chinese side gave me the platform, funding and access, while the Danish side gave me theoretical perspectives and a more systematic way of handling research questions.’
Completing the requirements of two universities was demanding. Looking back, she does not hide the strain, but neither does she regret the choice.
‘My first impression of the PhD journey is that I was tired – so tired. But I will never regret taking the double PhD. I gained experience, knowledge, friends and so many precious things. In the end, the tears and anxiety turn into happiness and pride. It is a unique treasure for life.’
Jing Jillian Wang plans to continue in academia. Her destination is still undecided, but her research career is only just beginning.
