Assessing the coordination and consistency of the policy system for achieving China’s carbon neutrality goal based on text and network methods

Lack of coordination and consistency in government policy-making has long been recognized as a weakness, yet its systematic quantification has been neglected. This study investigates this shortcoming by employing computational linguistics and network analysis tools to evaluate the coordination and consistency of climate policies in China through cross-referencing and collaboration among the State Council, ministries and local governments. A comprehensive dictionary of key policy terms and objectives from two key climate policies issued by the State Council, namely Opinions and Action Plan, was constructed to evaluate the succeeding 95 policy documents. The analysis of linguistic discontinuity provides insights into the substantial lack of coordination among ministries, with only 17.5% of term pairings exhibiting co-reference. Nevertheless, the overall policy content remains largely consistent with the central government’s dual carbon goals. Key policy documents and influential ministries play a critical bridging role, fostering cross-sectoral coordination and serving as the core of the network. Local government policy analysis reveals substantial fragmentation, with only 21.6% of term pairings exhibiting co-reference. A large number of potential collaboration opportunities are identified, such as those between financial regulators and industry-related ministries in the area of green finance. It underscores the need for enhanced cross-department and inter-governmental cooperation and alignment to implement climate goals effectively.