政策网络理论视角下“养老+”新业态政策体系优化研究

尹德挺¹　王丽丹²

（1. 北京行政学院；2. 北京市流通经济研究中心）

摘要：“养老+”新业态作为时代催生的新事物，需要成熟理论予以引领。对中央层面历年养老政策的文本分析显示，中国养老领域已形成基础保障类、服务提升类与社会支持类三维政策矩阵，制度驱动型特征明显，而多层次政策支持体系的理论框架仍有探讨空间。本文参考政策网络理论，基于“政策社群-政府间网络-专业网络-生产者网络-议题网络”的理论框架，分析归纳中国“养老+”新业态的政策运行机理及其在顶层设计、市场激励、技术标准与代际利益四个方面存在的问题，据此提出“制度供给-网络协同-知识转化-生态培育-价值重构”五个方面的改革设想，涵盖法律建设、跨部门协调、标准更新、产融创新及文化认同等领域的具体策略。

关键词：政策网络理论；“养老+”新业态；公共政策优化；多元主体协同；政策协同机制

作者简介：尹德挺，北京行政学院北京市人口研究所教授，北京，100044；王丽丹，北京市流通经济研究中心运行监测部，通信作者，北京，100744。

基金项目：研究阐释党的二十届三中全会精神国家社会科学基金重大项目“建立全国统一的人口管理制度研究”（24ZDA100）

引用格式：尹德挺，王丽丹. 政策网络理论视角下“养老+”新业态政策体系优化研究[J]. 经济与管理研究，2026，47（7）：3-15.

Policy System Optimization for the “Elderly Care+” New Business Form from the Perspective of Policy Network Theory

YIN Deting¹, WANG Lidan²

(1. Beijing Administration Institute, Beijing 100044;

2. Beijing Commercial Economy Research Center, Beijing 100744)

Abstract: The “Elderly Care+” new business form, an innovative model that integrates the traditional elderly care service system with modern industries, has become a crucial solution to tackle aging-related challenges. Globally, the “Elderly Care+” new business form has made initial progress, yet relevant research remains limited in scope. Academic studies on this new form are mainly concentrated in the areas of elderly care finance and internet-based senior services. This has constrained in-depth exploration of its development trajectory, market potential, and operational models. China’s scholars have made phased breakthroughs in identifying business forms and summarizing practical pathways. Nevertheless, theoretical inquiries into its intrinsic attributes and system architecture remain inadequate. Most studies merely interpret relevant policies or analyze regional cases, lacking a systematic theoretical framework for multi-stakeholder collaborative mechanisms. In this context, it is imperative to develop a policy model with Chinese characteristics by centering on the development of the “Elderly Care+” new business form and conducting a systematic analysis of its policy demands, practical dilemmas, and supporting systems.

Policy textual analysis reveals that the current policy system confronts four major dilemmas in advancing the development of the “Elderly Care+”new business form: barriers to inter-departmental coordination, obstacles in data governance, insufficient market vitality and underdeveloped industrial ecosystems, as well as imbalanced service provision amid intergenerational coordination and diverse elderly demands. Grounded in policy network theory, this paper adopts a five-dimensional analytical framework consisting of policy communities, intergovernmental networks, professional networks, producer networks, and issue networks to examine the operational mechanisms and practical dilemmas of the policy network governing China’s “Elderly Care+” new business form. To address these challenges, this paper proposes an integrated five-pronged pathway for public policy optimization, namely institutional supply, network coordination, knowledge transformation, ecosystem cultivation, and value reconstruction. At the policy community level, a dedicated legislative framework for the “Elderly Care+” new business form should be established, alongside a cross-cyclical policy adjustment mechanism. For intergovernmental networks, authorities shall enhance the efficiency of cross-departmental coordination, unify regulatory standards, and fully leverage the functions of policy implementation tools. Within professional networks, a sound technical standard system and robust evidence-based decision-making mechanisms need to be put in place. For producer networks, innovative financial support models shall be developed to optimize the layout of industrial ecosystems. Regarding issue networks, efforts should be made to balance intergenerational interests and strengthen the cultural identity and social inclusion of the elderly.

Keywords: policy network theory; “Elderly Care+” new business form; public policy optimization; multi-stakeholder collaboration; policy coordination mechanism

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