Administrative Burden in Multi-Actors Interactions: A grounded theory study of the old age allowance policy in China

Abstract

Administrative burdens vary across agencies and communities, and digital government initiatives are often seen as a potential solution. However, disadvantaged groups, particularly seniors, face more complex challenges that technology alone cannot resolve. In 2009, the Chinese government introduced the Old Age Allowance Policy to address the country’s rapidly aging population, supported by an online system that has been operational for several years. This research, based on in-depth interviews and grounded theory analysis, examines how the actions of frontline officers, citizens, and digital tools contribute to administrative burdens. The study develops a theoretical framework to understand administrative burden as an unintended consequence of digital transformation, focusing on the combined effects of citizens' cognitive capacities, discretionary actions by officials, and limitations of the online system. In response to these challenges, this study emphasizes the government’s critical role in creating an environment that helps citizens adapt to digital transformation.