中国老年人心理健康促进政策文本分析——基于“政策工具–政策力度–政策过程”的三维框架视角

Textual Analysis of Chinese Older Adults’ Mental Health Promotion Policies—A Three-Dimensional Framework Perspective Based on “Policy Instruments, Policy Intensity, and Policy Process”

摘要: 目的：随着中国人口老龄化程度的持续加深，老年群体的心理健康问题已成为重大的公共卫生问题。该研究旨在分析中国老年人心理健康促进政策的发展特征，并识别其存在的局限性，为完善相应政策体系、实现“健康老龄化”的目标提供实证依据与政策参考。方法：构建“政策工具–政策力度–政策过程”的三维分析框架，采用社会网络分析法与内容分析法，揭示政策发文主体的合作网络关系，并对1990年至2025年间中国国家层面发布的31份相关政策文本进行文本量化分析。结果：中国老年人心理健康促进政策的发文数量与政策力度均随着老龄化阶段的进展呈现出增长态势；从政策工具维度看，当前政策侧重于环境型政策工具与供给型政策工具，而需求型政策工具运用相对较少，且各类政策工具内部存在较为显著的不均衡现象；政策力度维度分析显示，政策的平均效力水平不高，多数文件由各职能部门单独或联合发布，由最高决策层级印发的顶层设计文件占比较低。政策过程维度分析显示，现有政策体系对已发生的老龄化阶段展现出一定的及时性，但针对未来深度老龄化社会的预见性与前瞻性政策仍存在不足。结论：当前老年人心理健康促进政策体系仍存在相应局限，未来应当系统提升政策效能，夯实健康老龄化的政策基础。

Abstract: Objective: Against the backdrop of an accelerating population aging process, mental health among older adults has emerged as a major public health issue. This study aims to systematically analyze the evolutionary characteristics and internal structure of China’s older adult mental health promotion policies, identify existing limitations, and provide empirical evidence and policy references for improving the corresponding policy system and achieving the goal of “healthy aging.” Methods: A three-dimensional analytical framework of “policy instruments, policy intensity, and policy process” was constructed. Using content analysis and social network analysis, the collaborative network among policy-issuing bodies was revealed, and a textual quantitative analysis was conducted on 31 relevant policy documents issued at the national level in China from 1990 to 2025. Results: The number of policy documents and the intensity of policies related to older adult mental health promotion in China have shown an increasing trend alongside the progression of aging stages. From the perspective of policy instruments, current policies emphasize environmental and supply-side instruments, while demand-side instruments are relatively underutilized, with significant internal imbalances in the application of various instruments. The analysis of the policy strength dimension shows that the average effectiveness of the policy is not high. Most documents are issued by functional departments alone or jointly, and the top-level design documents issued by the highest decision-making level account for a relatively low proportion. Analysis of the policy process dimension reveals that the existing policy system demonstrates a certain degree of responsiveness to the aging stages that have already occurred, but there remains a lack of foresight and forward-looking policies addressing the future deeply aged society. Conclusion: The current older adult mental health promotion policy system still exhibits certain limitations. Future efforts should systematically enhance policy effectiveness and solidify the policy foundation for healthy aging.