我国康复辅助器具产业发展政策量化研究与启示：基于“目标-工具-力度”的三维框架

doi:10.3969/j.issn.1006-9771.2026.09.011

Abstract

Abstract:

Objective To quantitatively analyze and evaluate the content of China's assistive technology industry policies.

Methods Based on the three-dimensional framework of policy "objectives-instruments-intensity", this study examined 101 national-level assistive technology industry policies issued between 2011 and 2024. Policy text analysis was conducted to assess the matching and coordination among policy objectives, policy instruments and policy intensity. Furthermore, the policy modeling consistency (PMC) index model was applied to establish an evaluation system consisting of nine primary indicators and 35 secondary indicators, and six key policies were quantitatively evaluated.

Results The policy objectives mainly focused on optimizing the industrial development structure, also emphasized supportive environments for industrial development and the enhancement of innovation capacity. Policy instruments were dominated by supply-oriented and environment-oriented instruments, supplemented by demand-oriented instruments, aiming to strengthen technological foundations and competitiveness, promote standardized development, and facilitate industrial development and upgrading. Regarding the matching between policy objectives and instruments, multiple instruments were adopted to support different objectives, with different priorities. In terms of the matching between policy objectives and policy intensity, policies mainly emphasized improving the accessibility of assistive technology products and meeting the rehabilitation needs of different populations. Regarding the matching between policy instruments and policy intensity, supply-oriented instruments were more frequently adopted and showed higher policy intensity, indicating strong governmental efforts to optimize production factor allocation and enhance the capacity of market entities. The average PMC index score was 6.45, indicating relatively high policy quality, strong internal consistency, stable policy orientation, and clear objectives. The PMC scores for policy evaluation and policy instrument dimensions were relatively high, while some policies showed relatively narrow objectives.

Conclusion China's assistive technology industry policies demonstrate relatively high quality. Future policy development should further strengthen industrial innovation capacity, optimize the structure of policy instruments, and improve the alignment between policy objectives and instruments.

Key words: assistive technology, policy text analysis, policy objective, policy instrument, policy intensity, policy modeling consistency index

CLC Number:

R496

Gao Jiamin, Fu Zhenjing, Wang Muxiong, Jiang Xiaqing, Liu Zhihong, Zhang Hongtao. A quantitative analysis of development policies for China's assistive technology industry: insights based on the "objective-instrument-intensity" framework[J]. Chinese Journal of Rehabilitation Theory and Practice, 2026, 32(9): 1087-1099.

Figures/Tables 12

Table 1

Table 2

Table 3

Variable settings for the quantitative evaluation system of assistive technology industry policies"

一级变量	二级变量	评价标准(是=1，否=0)
政策性质X₁	预测X₁₁	政策是否有预测性
	建议X₁₂	政策是否有建议性内容
	描述X₁₃	政策是否有描述性内容
	引导X₁₄	政策是否有引导性
	监管X₁₅	政策是否涉及监管
政策时限X₂	当年X₂₁	政策目标实现时间是否为1年内
	短期X₂₂	政策目标实现时间是否为1~3年
	中期X₂₃	政策目标实现时间是否为3~5年
	长期X₂₄	政策目标实现时间是否为5年以上
政策评价^[21] X₃	目标明确X₃₁	政策制定的目标是否明确
	依据充分X₃₂	政策制定的依据是否充分
	方案科学X₃₃	政策制定的方案是否科学
	规划详实X₃₄	政策制定的规划是否详细
	权责清晰X₃₅	政策划分的权责是否清晰
发文机构X₄	全国人大X₄₁	是否是全国人大及其常务委员会颁布的法律
	国务院及办公厅X₄₂	是否是国务院及其办公厅发布的规范性文件
	3个及以上部委联合X₄₃	是否是3个及以上部委联合发文
	2个部委联合X₄₄	是否是2个部委联合发文
	各部委单独X₄₅	是否是各部委单独发文
政策目标X₅	增强产业创新能力X₅₁	政策目标是否包括创新成果有效转化、创新人才队伍逐渐壮大和创新平台体系搭建完善
	完善产业规模格局X₅₂	政策目标是否包括产品开发供给、优势产业集群、市场拓展和产品适配
	优化产业发展环境X₅₃	政策目标是否包括完善政策法规体系、健全市场监管机制和改善产品质量及服务水平
政策工具X₆	供给型X₆₁	是否运用供给型政策工具
	需求型X₆₂	是否运用需求型政策工具
	环境型X₆₃	是否运用环境型政策工具
政策对象^[18]X₇	产业链上游X₇₁	政策是否面向核心技术及产品的研发环节
	产业链中游X₇₂	政策是否面向终端产品生产、制造的环节
	产业链下游X₇₃	政策是否面向康复辅助器具流通与使用过程中提供服务的环节
政策视角^[22] X₈	宏观X₈₁	政策是否聚焦宏观国家层面
	中观X₈₂	政策是否聚焦中观产业层面
	微观X₈₃	政策是否聚焦微观企业层面
政策领域^[23] X₉	政治X₉₁	政策是否在实施中涉及政治领域
	经济X₉₂	政策是否在实施中涉及经济领域
	社会服务X₉₃	政策是否在实施中涉及社会服务领域
	科技X₉₄	政策是否在实施中涉及科技领域

Table 3

Figure 1

Figure 2

Table 4

Table 5

Figure 3

Figure 4

Figure 5

Figure 6

Table 6

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类型	工具名称	工具含义
供给型	平台建设	搭建科技创新、技术研发、租赁服务等平台
	信息支持	整合产业信息，促进信息共享
	资金投入	通过政府拨款、财政投资、示范补助、奖励等形式支持产业发展
	人才培养	培养康复辅助器具研发、配置等人才，加强人才队伍建设
	创新支持	促进科研院校和科技企业合作，加快科研创新成果转化
需求型	市场塑造	优化资源布局，强化市场内生动力，拓展新兴市场
	国际交流	加强技术、产能、贸易等国际合作以及中高端产品进出口
	政府采购	政府用财政资金购买产品或服务
	消费支持	将康复辅助器具纳入保险支付范围
环境型	发展规划	对康复辅助器具产业发展进行总体规划
	政策法规	加强相关政策法规研究，制定保障产业发展的政策法规
	税收优惠	对康复辅助器具企业税收进行减免
	金融服务	通过信贷、债券、基金、金融产品、知识产权质押融资、专利保险、股权等措施提供资金支持
	宣传推广	开展康复辅助器具宣传推广活动
	监督管制	健全市场监管体系，对康复辅助器具产业进行监督管理
	标准导向	加快重点产品、管理、服务标准制修订，健全康复辅助器具标准体系

政策编号	发文年份	政策名称	发文字号
P1	2011年12月22日	残疾人辅助器具服务“十二五”实施方案	残联发〔2011〕18号
P2	2016年10月9日	辅助器具推广和服务“十三五”实施方案	残联发〔2016〕51号
P3	2016年10月27日	国务院关于加快发展康复辅助器具产业的若干意见	国发〔2016〕60号
P4	2017年9月11日	关于开展国家康复辅助器具产业综合创新试点的通知	民发〔2017〕150号
P5	2020年12月17日	关于开展康复辅助器具产业第二批国家综合创新试点的通知	民发〔2020〕149号
P6	2021年8月16日	“十四五”残疾人康复服务实施方案	残联发〔2021〕33号

政策目标		编码数量	占比/%
增强产业创新能力	创新成果	22	7.17
	创新平台	6	1.95
	创新人才	7	2.28
	合计	35	11.40
完善产业规模格局	产品开发	51	16.61
	产业集群	11	3.58
	市场拓展	51	16.61
	产品适配	98	31.92
	合计	211	68.73
优化产业发展环境	政策体系	12	3.91
	监管体制	13	4.23
	质量标准	36	11.73
	合计	61	19.87
总计		307	100.00

政策工具		编码数量	占比/%
供给型	平台建设	30	9.77
	信息支持	8	2.61
	资金投入	11	3.58
	人才培养	19	6.19
	创新支持	49	15.96
	合计	117	38.11
需求型	市场塑造	32	10.42
	国际交流	12	3.91
	政府采购	5	1.63
	消费支持	41	13.36
	合计	90	29.32
环境型	发展规划	13	4.23
	政策法规	12	3.91
	税收优惠	3	0.98
	金融服务	8	2.61
	宣传推广	13	4.23
	监督管制	19	6.19
	标准导向	32	10.42
	合计	100	32.57
总计		307	100.00

政策编号	X1	X2	X3	X4	X5	X6	X7	X8	X9	PMC	排名	等级
P1	0.80	0.25	1.00	0.20	0.33	0.67	1.00	1.00	0.50	5.75	5	良好
P2	0.80	0.25	1.00	0.20	0.33	1.00	1.00	1.00	1.00	6.58	4	优秀
P3	0.80	0.25	1.00	0.20	1.00	1.00	1.00	1.00	1.00	7.25	1	优秀
P4	0.60	0.25	1.00	0.20	1.00	1.00	1.00	1.00	1.00	7.05	2	优秀
P5	0.60	0.25	1.00	0.20	1.00	1.00	1.00	1.00	1.00	7.05	2	优秀
P6	0.80	0.25	1.00	0.20	0.33	1.00	0.33	0.33	0.75	5.00	6	良好
均值	0.73	0.25	1.00	0.20	0.67	0.94	0.89	0.89	0.88	6.45	—	优秀

A quantitative analysis of development policies for China's assistive technology industry: insights based on the "objective-instrument-intensity" framework

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