摘要
随着中国老龄化加速,银发经济已成为国家战略层面的重点议题。本文基于1982—2024年间国务院及各部门、省级政府4697份政策文本,采用TF-IDF与共词网络方法,梳理了银发经济政策的演变与区域差异。研究发现:中国银发经济政策体系已形成涵盖社会保障、养老保险、养老服务等的多维结构,其中养老服务居于核心,养老保险构成支柱;政策主题演变经历了探索与部署阶段(1982—2003年)、改革与深化阶段(2004—2011年)、协同与整合阶段(2012年至今),政策重心由银发事业单一发展向事业产业并重转型,但产业发展政策仍偏弱,市场机制与人才支持不足;在区域层面,北京侧重制度保障,上海强调供给与医养结合,这与两地户籍人口老龄化程度和财政支出结构差异有关。基于此,本文提出三方面政策启示:一是加强顶层设计与部门协同;二是完善产业扶持与市场机制;三是因地制宜推进区域差异化治理。
With the acceleration of population aging in China,the silver economy has become a key issue at the national strategic level.Drawing on 4,697 policy documents issued by the State Council,its affiliated ministries,and provincial governments between 1982 and 2024,this study employs TF-IDF and co-word network analysis to trace the evolution and regional differences of silver economy policies.The findings reveal that China’s policy system for the silver economy has developed into a multi-dimensional structure encompassing social security,pension insurance,eldercare services and so on,with eldercare services at the core and pension insurance serving as the backbone.The evolution of policy themes can be divided into three phases:the stage of exploration and deployment(1982–2003),the stage of reform and deepening(2004–2011),and the stage of coordination and integration(2012–present).During this process,the policy focus has shifted from a singular emphasis on eldercare undertakings to a dual emphasis on both undertakings and industry.However,policies supporting industrial development remain underdeveloped,with insufficient market mechanisms and talent support.At the regional level,Beijing places greater emphasis on pension,while Shanghai highlights service provision and the integration of medical care and eldercare—differences largely shaped by the distinct levels of population aging and fiscal expenditure structures in the two cities.Based on these findings,this paper proposes three policy implications:(1)strengthening top-level design and interdepartmental coordination;(2)improving industrial support and market mechanisms;and(3)advancing region-specific and differentiated governance.
作者
姬聪
刘强
Ji Cong;Liu Qiang(School of Social Development and Public Policy,Fudan University,Shanghai 200433;Shaanxi Radio and Television Newspaper Agency,Xi’an,Shaanxi 710000,China)
出处
《上海经济》
2025年第6期60-78,共19页
Shanghai Economy
