Co-production during crises: A strategy to mitigate crisis-induced conflicts in public service provision

The co-production of public services is recognized as a cornerstone of resilient governance. However, its adaptability during prolonged turbulent conditions is not well understood. This study develops and applies a conceptual framework to examine how public service systems can respond flexibly to fluctuating demands and conflicts during crises. Utilizing extensive empirical data from Shanghai during the first half of 2022, this research explores the mechanisms of co-production during crises, characterized by citizen-government dialogues, citizen-led resource replenishment, multi-level government empowerment, and participatory rule-making. The findings reveal that co-production during crises evolves through stages of a crisis—each marked by distinct interactions between voluntary and coordinated citizen and government actions—effectively mitigating conflicts between service demands and provisions. This study extends the understanding of co-production in crisis contexts, offering evidence-based insights that underscore the importance of adaptable strategies in public service governance during emergencies, thus providing valuable guidance for policymakers.