3.1. Cross-National Evidence on Governance Fragmentation and Care Deficits
Post-pandemic mortality reviews highlight how structural fragmentation and inadequate baseline staffing compromise residential elder care across international jurisdictions. Institutional analyses demonstrate that when emergency public health responses prioritize acute hospital systems over residential settings, long-term care facilities experience catastrophic operational deficits and severe staffing shortages. In Italy, chronic underfunding, fragmented governance, and delayed personal protective equipment distribution severely exacerbated facility vulnerabilities during the initial crisis, causing nursing homes to account for 32 per cent of COVID-19 related deaths in the first wave ("Neglecting nursing homes"). Similarly, comparative evidence from Portugal indicates that insufficient staffing, the absence of emergency preparedness plans, and weak coordination between national health and social care authorities critically undermined outbreak containment within underfunded and under-regulated facilities ("Portugal"). When examined through policy implementation theory, these shared cross-national deficits reveal that treating residential elder care as an isolated social welfare sector rather than an integrated component of universal healthcare infrastructure creates critical operational bottlenecks during severe public health emergencies. The persistent structural disconnect between decentralized care home operators and centralized health authorities directly impedes the rapid deployment of essential protective supplies, diagnostic testing protocols, and emergency workforce support. Consequently, bridging theoretical governance models and practical care delivery requires legally enforceable statutory direct-care minimums combined with unified regulatory oversight, ensuring that institutional resilience, workforce capacity, and resident safety remain protected across all long-term care networks.