叙事、话语与政策聚焦：基于政策文本的民族地区农村养老支持体系分析

Narrative, Discourse and Policy Focus: An Analysis of the Rural Elderly Support System in Ethnic Minority Regions Based on Policy Texts

摘要: 本文以民族地区农村养老支持体系为研究对象，采用批判性话语分析与内容分析相结合的方法，系统考察了2000~2023年间中央与地方(以内蒙古、广西、新疆、宁夏、西藏及云南、贵州等典型省份为例)出台的150余份相关政策文本。研究发现：第一，政策叙事经历了从“救济补缺”到“普惠发展”，再到“积极应对”与“乡村振兴协同”的阶段性演进，话语核心由“生存保障”转向“生活质量”与“社会参与”。第二，政策话语在构建民族地区养老问题时，长期存在“双重弱化”的叙事倾向：既将其视为一般性农村养老问题的“边疆困难版”，又常将其文化特殊性简化为待帮扶的“风情符号”，未能充分将民族文化视为内生性治理资源。第三，政策支持体系呈现“经济–服务–文化”的阶梯式供给特征，对经济保障与服务设施的关注度最高，而对文化适应、精神福祉与社区文化资本动员的政策表达最为模糊与薄弱。本文认为，未来民族地区养老政策应实现从“文化敏感”向“文化赋能”的范式升级，通过将文化主体性、传统互助伦理及地方性知识有机嵌入国家支持体系，构建更具适应性、尊严感和可持续的融合式养老路径。

Abstract: This study examines the rural elderly care support system in ethnic minority regions, employing a combined methodology of critical discourse analysis and content analysis to systematically investigate over 150 policy documents issued by central and local governments (exemplified by typical provinces including Inner Mongolia, Guangxi, Xinjiang, Ningxia, Tibet, Yunnan, and Guizhou) between 2000 and 2023. The findings reveal three key points: First, policy narratives have undergone a phased evolution from “relief and gap-filling” to “inclusive development”, and subsequently to “active response” and “rural revitalization synergy”, with the discursive core shifting from “survival security” toward “quality of life” and “social participation”. Second, in constructing the elderly care discourse for ethnic minority regions, policy narratives have long exhibited a tendency of “dual weakening”: treating these regions merely as a “frontier-difficult version” of general rural elderly care issues, while simultaneously reducing their cultural particularities to “exotic symbols” awaiting assistance, thereby failing to fully recognize ethnic cultures as endogenous governance resources. Third, the policy support system demonstrates a stepped supply characteristic of “economy—service—culture”, with the highest attention devoted to economic security and service facilities, whereas policy expressions regarding cultural adaptation, spiritual well-being, and community cultural capital mobilization remain the most ambiguous and weak. This paper argues that future elderly care policies in ethnic minority regions should achieve a paradigm upgrade from “cultural sensitivity” to “cultural empowerment”, constructing a more adaptive, dignified, and sustainable integrated elderly care pathway by organically embedding cultural subjectivity, traditional mutual aid ethics, and local knowledge into the national support system.