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The energy-efficiency promotion of new residential buildings in China has achieved great progress in the past three decades. However, the expected policy outcomes cannot be fully achieved due to the barriers in the policy-making and implementation process. Whereas governments play a critical role in policy formation, perceptions of stakeholders involved in the building life cycle and the industrial value chain (such as developers, design institutes and relevant material manufactures) are fundamental to the successful implementation. To collect and identify the barriers of significant influence on the industry from stakeholders’ perspectives, this paper used a nationwide institutes’ questionnaire to collect stakeholders’ voices regarding the barriers, the corresponding popularity and the severity. All the barriers were categorized according to institutions’ scorings through cluster analysis. The relationships between barriers were also analyzed according to the framework based on policy cycle and policy environment. Results indicated that the core problem is the ineffectiveness translating energy savings into benefits and profits. Accordingly, three major barriers were identified, namely the (1) unsatisfied policy design and implementation; (2) stakeholders’ lack of implementation capacity in developing and constructing high-performance new residential building projects and adopting relevant technologies; and (3) insufficient legalization of relevant market. Other identified barriers either were those not agreed by all institutions, or those could be eliminated easily after the removal of the above three barriers.

Nationwide energy efficiency (EE) promotion of new residential buildings is affected by multiple factors regarding policies, markets, technologies, capacities, and economics. The perceived influences of these factors by stakeholders are crucial to the effectiveness evaluation of current policies and the selection of policy instruments. However, they are normally assumed or taken for granted. The knowledge gap between stakeholders’ perceptions and research assumptions may lead to researchers’ recognition bias. Correspondingly, this paper aims to identify the significant factors, perceived by frontline stakeholders, influencing nationwide EE promotion of new residential buildings before 2020 and 2030. Factors were collected through literature review and their influence were evaluated via Analytical Hierarchy Process based on the data collected in the questionnaires distributed to 32 institutes. The theory of Nested Policy Design Framework and Policy Environment was used to structure the hierarchy and generate policy implications. Results indicate that (1) policy factors are of the greatest influence before 2020 and market perfection factors will have great influences from 2020 to 2030, indicating the transformation of governance arrangement to “market-based” and “network-based” from the current legal-based system; and (2) factors regarding market needs are of significant influence in both terms, revealing the way the transformation should be accomplished.