Knowledge Mapping and Metasynthesis of Policy Capacity Studies Using Grounded Theory

Document Type : Research Paper

Authors

1 Assistant Prof. Department of Management, Imam Javad Institute of Higher Education, Yazd, Iran.

2 Associate Prof., Department of Urban Management, Faculty of Management and Accounting, Allameh Tabataba'i University, Tehran, Iran.

3 Prof., Department of Public Administration, Faculty of Management and Accounting, Allameh Tabataba'i University, Tehran, Iran.

10.22059/jipa.2025.399464.3746

Abstract

Objective
The growing complexity of policy-making and governance has led to the development of the concept of policy capacity. Despite the extensive number of studies devoted to this subject, the concept remains ambiguous in both definition and practical application. Numerous studies have explored policy capacity from different perspectives, addressing a range of dimensions and themes. Consequently, there is a pressing need to systematically examine this body of literature in order to: (a) map the temporal trends and disciplinary distribution of policy capacity research; (b) outline the knowledge structure of studies in this field; (c) provide a comprehensive view of the current state of research; and (d) identify thematic gaps for future investigation. The objective of this article is therefore to offer a clearer and more integrated understanding of the results of policy capacity studies through knowledge mapping and metasynthesis. Specifically, the study seeks to analyze the temporal distribution of publications, map the keywords used in policy capacity studies, identify the factors influencing policy capacity, and ultimately propose a conceptual and paradigmatic model of policy capacity.
 
Methods
The study employed a scientometric approach, supported by network analysis-based algorithms in VOSviewer software, to examine both international and Persian-language databases. The databases consulted included Sciencedirect, Google Scholar, and Scopus for international literature, and Magiran, Civilica, and Noormags for Persian sources. The search strategy targeted the occurrence of “policy capacity” in titles, abstracts, and keywords up to the year 2025 (1404). The initial search identified 842 articles (819 English and 23 Persian). After filtering and eliminating irrelevant studies, 250 articles were selected for in-depth analysis (241 English and 9 Persian). Subsequently, following the steps of the metasynthesis method and employing grounded theory techniques, these studies were synthesized and analyzed.
Results
The review of 250 articles indicated that policy capacity research can be grouped into six broad categories: (1) conceptualization of policy capacity, (2) factors influencing policy capacity and strategies for enhancement, (3) challenges in building and sustaining policy capacity, (4) effects and applications of policy capacity, (5) criteria and evaluation of policy capacity, and (6) governance system analysis through the lens of policy capacity. Through grounded theory analysis, 299 open codes and 16 axial codes were identified. The findings emphasize that, in addition to competence and capability, the level of policy-making is critical. Moreover, within the domain of competencies, attention should not be limited to analytical, operational, and political competences; innovation competence also emerged as a vital dimension. This led to the inclusion of innovation capacity, along with local, national, and international capacities, as integral types of policy capacity. Altogether, 36 distinct policy capacities were identified at the intersection of competences, capabilities, and levels, with innovation capacity highlighted as a particularly new and important type. Knowledge mapping also revealed that most existing studies have emphasized individual, political, and analytical capacities, although recent scholarship increasingly acknowledges innovation capacity. The mapping further demonstrated significant interactions between policy capacity, policy-making quality, governance, and development. Additionally, the policy-making process was shown to be cyclical, involving three interconnected stages: policy analysis and formulation, policy implementation, and evaluation and monitoring—an iterative cycle that adds to the complexity and challenges of policy-making.
Conclusion
The findings underscore that policy capacity constitutes a fundamental determinant of effective policy-making. Policymakers must therefore recognize and strengthen all 36 identified types of policy capacity, while addressing the challenges that arise throughout the stages of formulation, implementation, and review. Furthermore, attention should be directed toward the interaction and feedback cycles among different capacities, with particular emphasis on fostering innovation capacity and balancing local, national, and international levels of policy capacity. Strengthening these dimensions is essential for enhancing governance quality and supporting sustainable policy development.

Keywords

References

 
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Journal of Public Administration
Volume 17, Issue 4
2025
Pages 992-1020

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