养老服务三级网络的政策传导偏差与治理优化——以新化县为例

Policy Transmission Deviation and Governance Optimization of the Three-Level Elderly Care Service Network —Taking Xinhua County as an Example

摘要: 当前，我国人口老龄化进程持续深化，县域作为老年人口集中区域深度老龄化特征尤为突出，已成为应对人口老龄化的关键场域。国家将积极应对人口老龄化作为重要国家战略，在相关政策中明确提出健全县–乡–村三级养老服务网络、推进基本养老服务均等化的部署，推动养老服务资源下沉。本文以湖南省新化县为研究对象，立足政策执行与协同治理理论，运用政策文本分析、二手资料分析等方法，梳理三级养老服务政策体系，分析县域养老三级网络建设中的各类困境及内在生成原因。研究表明，新化县受人口外流、财政薄弱、城乡结构失衡等约束，养老三级网络存在诸多问题。基于此，本文从健全政策传导机制、理顺协同治理结构等方面提出优化路径，为中西部同类县域完善养老服务治理提供参考。

Abstract: At present, the process of population aging in China is continuously deepening. As concentrated areas of the elderly population, county-level regions present particularly prominent characteristics of deep aging and have become a key field for addressing population aging. The state has taken actively coping with population aging as an important national strategy, and explicitly put forward in relevant policies the arrangements of improving the county-township-village three-level elderly care service network, promoting the equalization of basic elderly care services, and facilitating the downward sinking of elderly care service resources. Taking Xinhua County of Hunan Province as the research object, based on the theories of policy implementation and collaborative governance, this paper adopts methods such as policy text analysis and secondary data analysis to sort out the three-level elderly care service policy system, and analyzes various dilemmas and their internal causes in the construction of the county-level three-level elderly care network. The research shows that Xinhua County is constrained by population outflow, weak financial capacity, unbalanced urban-rural structure and other factors, resulting in numerous problems in the three-level elderly care network. Accordingly, this paper proposes optimization paths from the aspects of improving the policy transmission mechanism and rationalizing the collaborative governance structure, so as to provide a reference for similar counties in the central and western regions to improve elderly care service governance.