University Governance for Sustainability: Overcoming Structural Fragmentation to Enable Institutional Transformation

Against the global imperative to advance higher education for sustainable development and institutional transformation in support of the United Nations Sustainable Development Goals (SDGs), coherent governance architectures have been recognized as a foundational prerequisite for enabling universities to embed sustainability into values into core operations, teaching, research, and community engagement. Drawing on socio-technical systems theory and complex adaptive systems thinking, this study analyzes 167 central-level policy documents (2015–2023) related to China’s Higher Education “Delegation, Regulation, and Service” reform to examine how governance intentions are translated into organizational control mechanisms. A dual-dimensional analytical framework is developed that conceptualizes policy objectives as system goals and policy instruments as control levers, combining content analysis with fuzzy systems methodology to quantify system coupling. The findings reveal distinct emergent patterns: governance objectives exhibit structural differentiation with functional complementarity, whereas the synergy of control levers is shaped by their functional roles and organizational adaptability. More importantly, a selective pattern of structural–functional decoupling is identified. Coupling between Improving Quality and its supporting levers declines substantially over the study period, while coupling involving Stimulating Vitality exhibits marked volatility and an overall decline. By contrast, coupling associated with Breaking Down Institutional Barriers and Improving the Modern University System remains consistently high. These differentiated patterns suggest that governance misalignment is concentrated in quality- and vitality-related objectives rather than occurring uniformly across the governance system. The study provides a diagnostic framework for assessing governance coherence as a prerequisite for organizational capacity-building, contributing to both sustainability governance research and the design of more coherent institutional governance systems.