Tianke Zhu

Embedding the program of elderly care into community-based service system seems to imply that China is reorganising capacities of neighbourhood governance. The program, created by transformation of neighbourhood governance, represented the state government’s frustration with the institutional embodiment of neoliberalism. However, stimulating neighbourhood organisations in elderly care service through involvement of market instruments demonstrated the neoliberal approach. In this study, we provided a research framework in the context of embedded neoliberalism to explore the dilemma of neighbourhood governance in China. By interviewing 100 elderly people in five neighbourhoods in Nanjing, China, we examined the home-based elderly care (HEC) model to analyse the changes in socio-spatial relationships of neighbourhoods. We argued that the state-organised system of market instruments as a form of neighbourhood system weaken the spontaneity of elderly residents in developing social capitals. Moreover, the emerging program is struggling to operate because the devolution of conservative governance capacity from the state to the neighbourhood does not provide resources, leading to the restrained market provision. Thus, this transformation of neighbourhood governance can only be effective if there is a clear complementarity relationship between the role of state and market instruments. The attention of further studies on neighbourhood governance needs to re-examine the reciprocal relationships in the context of declining neoliberalism.

Housing commodification seems to suggest that a process of a state is embracing private governance. However, private governance in Chinese neighborhoods is a two-way trajectory. This paper examined two types of housing neighborhoods, namely, a work-unit housing neighborhood and gated commodity housing to understand the changes in neighborhood governance. It is interesting to observe that during the Covid-19 epidemic period, the state government enhanced its presence and public trust in neighborhood governance by changing the former ways of self-governance. As a strategy for the state to return to local governance, the grid governance is the reconfiguration of administrative resources at a neighborhood level and professionalizes neighborhood organizations to ensure the capacities of the state to solve social crises and neighborhood governance. The potential side effects of changing neighborhood governance are that while the implementation of grid governance has improved internal connections among residents, the empowered neighborhood governments acting as the “state agent on the ground” leads to an estrangement between residents and private governance. The underdevelopment of neighborhood autonomy is not only due to the restriction of state government, but more importantly, the reciprocal relationship of state-led neighborhood governance in the context of housing privatization development in China.