我国基层中医药人才队伍发展的政策研究——基于“主题-工具-评价”三维分析框架

BackgroundPrimary-level traditional Chinese medicineTCMpersonnel serve as the cornerstone of China's TCM development. Strengthening this workforce is crucial for advancing the inheritance and innovation of TCM and safeguarding public health. ObjectiveThis study analyzes the formulation characteristics and implementation outcomes of China's primary-level TCM talent policies20122024reveals policy instrument preferencesand assesses workforce development status to optimize TCM service capacity at the grassroots. MethodsBased on a three-dimensional "policy theme-policy tool-policy evaluation" frameworkwe employed LDA topic modeling to analyze 47 policy documents publicly available on Chinese government websitesused NVivo coding to examine policy tool distributionand evaluated policy implementation effectiveness using data from official sources including the National Administration of Traditional Chinese Medicine. Resultsreveal that policy themes predominantly focus on talent utilization and cultivationcombined >65%. Instrument usage exhibits a capacity-building-dominated structure47.0%> regulatory23.5%> incentive20.2%> informational/persuasive 9.3%yet demonstrates structural imbalanceseconomic incentives constitute merely 5%while information provision and promotion tools each account for <5%. By 2023China's primary-level TCM workforce reached 277000 personnelwith rural doctors proficient in TCM or TCM-Western integrated practices surging to 128000significant growth since 2012. Structural challenges persistTCM practitioners comprise only 22.6% of health personnel in corresponding institutionsbelow the 25% targetper-capita allocation remains inadequateand shortages of high-caliber professionals endure despite expanded service coverage. ConclusionThematic analysis confirms policy prioritizes talent utilization and cultivation. Instrument deployment reveals a "capacity-building-ledregulation-supportedincentive-supplemented" frameworkwith training programsstandard-settingand non-financial incentives as dominant sub-tools. Howeverinsufficient economic incentives and underutilized informational constrain policy effectiveness. Implementation challenges persistimbalanced talent distributionregional disparitiesand shortages of high-caliber professionals. While systemic policy architecture existsoptimizing instrument combinations and resource allocation remains crucial to enhance the accessibility and sustainability of grassroots TCM services.