协同治理视角下智慧养老政策文本研究——以杭州市为例

Collaborative Governance Perspective on Smart Elderly Care Policy Text Research—A Case Study of Hangzhou

摘要: 随着我国老龄化程度持续加深，智慧养老已成为重构养老服务供给体系的重要政策方向。本文以杭州市智慧养老政策体系为研究对象，基于协同治理理论，构建“政策网络分析–政策文本分析–区域比较分析”的三层次分析框架，从结构、工具与空间三个维度对其运行机制与治理约束进行系统诊断。研究发现，杭州市智慧养老政策体系呈现出“强政府引导下的平台型协同治理”特征，政策工具配置以供给型为主导，需求型工具明显不足，且城乡差异显著。进一步分析表明，该体系面临数据“汇而不通”、协同结构失衡与制度化规则缺失三重治理约束，其深层共因在于高度依赖行政动员与项目驱动，缺乏稳定制度规则的刚性支撑。本文提出推动数据标准统一、构建多元主体制度化协同网络、建立数据驱动的政策复审机制等建议，以期为智慧养老政策优化提供参考。

Abstract: With the deepening of population aging in China, smart elderly care has become a significant policy direction for reshaping the elderly care service supply system. This study takes Hangzhou’s smart elderly care policy system as the research object and based on collaborative governance theory, constructs a three-tier analytical framework of “policy network analysis - policy text analysis - regional comparative analysis” to systematically diagnose its operational mechanisms and governance constraints from structural, instrumental, and spatial dimensions. The findings reveal that Hangzhou’s smart elderly care policy system exhibits the characteristics of a “platform-based collaborative governance model under strong government guidance”, with policy instruments predominantly supply-oriented, demand-oriented instruments significantly insufficient, and notable urban-rural disparities. Further analysis indicates that the system faces three governance constraints—fragmented data integration, imbalanced collaborative structure, and lack of institutionalized rules—with the underlying cause lying in its heavy reliance on administrative mobilization and project-driven approaches, lacking the rigid support of stable institutional rules. This paper proposes recommendations including promoting the unification of data standards, building an institutionalized collaborative network of diverse actors, and establishing a data-driven policy review mechanism, aiming to provide references for the optimization of smart elderly care policies.