Cross-Level Weaving: The Co-Construction of Structure-Practice in Crisis Governance

The need to cope with frequent non-linear, transboundary mega-crises presents a major challenge for modern states. A high-quality crisis response requires appropriate governance structures to provide authoritative decision-making, shared cognition, and sophisticated coordination, in conjunction with frontline actors to provide situated coping practices. How do these two dynamically co-construct an adaptive crisis governance system? Working from institutional practice theory, this study develops a conceptual analytical framework for structure-practice. Through a case study of the early response to COVID-19 in Wuhan, this study finds that, under the institutional constraints and empowerment provided by the “wartime” structure, dispersed actors improvised a series of situated coping practices after their initial experiences of cognitive dissonance and emotional shock. Through an institutional escalation process, some of the practices were institutionally integrated, which in turn reproduced the structure. This study defines these processes as “cross-level weaving,” a concept that reveals the processes and mechanisms by which structures and actors shape each other, thereby shedding new theoretical light on the dynamic and adaptive nature of crisis response.