ABSTRACT
Both policy entrepreneur and policy implementer play critical roles in the policy process. Little attention has been devoted to how the identity overlap may influence policy change. This paper addresses this gap using a case-study approach and explores the vertical-greening policymaking in Shanghai (1992–2016), China. Three conclusions are advanced. The identity of policy implementer prompts entrepreneurial tactics to remove the implementation barriers. The discrepancy in perception of the policy-goal ambiguity between the policy implementer and policymaker may compromise policy adoption. The dual identity does not prevent the policy entrepreneur from accepting compromises in order to have the policy passed.
