Using the policy capacity framework to evaluate New Zealand’s primary health care policy implementation

Tim Tenbensel, Lesley Middleton, Pushkar Silwal and Jacqueline Cumming

Public Administration and Policy: An Asia-Pacific Journal, 2026, vol. 29, issue 1, 36-49

Abstract: Purpose This study applies the policy capacity framework (PCF) to evaluate the success or failure of the implementation of Aotearoa | New Zealand’s primary health care (PHC) policy. It identifies which ‘valued policy objectives’ (VPOs) within the policy subsystem have progressed or stagnated, through identifying the key capacity profiles associated with these objectives.Design/methodology/approach The research draws on interviews with 55 key informants in the PHC sector to gather perspectives on the progress of VPOs between 2010 and 2020. The analysis adapted the PCF, which distinguishes between macro and meso- (district) level capacities.Findings The study identifies two capacity configurations: (1) meso-level political and operational capacity were crucial for advancing sector-led PHC objectives, and (2) macro-level operational capacity was essential for addressing system-driven issues such as reducing inequities, access barriers, and accountability. Analytical capacity factors received less emphasis as drivers of progress.Originality/value Two key priorities in New Zealand’s PHC policy are the fostering of operational capacity at the national level, and collaborative political and operational capacity at the meso-level. More broadly, the analysis shows how the PCF can be used as a diagnostic tool for evaluating policy capacity strengths and weaknesses within a specific policy domain.

Keywords: Policy capacity framework; Implementation; Policy success; Primary health care; New Zealand (search for similar items in EconPapers)
Date: 2026
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Persistent link: https://EconPapers.repec.org/RePEc:eme:pappps:pap-11-2024-0183

DOI: 10.1108/PAP-11-2024-0183

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