政策设计是公共政策研究的重要议题之一，随着治理环境的日益复杂多变，学界对于 政策设计的研究重点从单一政策工具向政策组合转变。精准匹配作为接收方的目标群体需 求和动机是政策组合有效的关键。目前政策研究通常假定同一目标群体是同质性的，但社 会结构的变迁使同一群体内部分化加剧，特定议题下的政策目标群体内部有多元化的需求 和行为动机。本研究基于政策组合和“目标群体的社会建构”理论，搭建“政策组合与政 策目标群体异质性”的分析框架，旨在研究针对异质性目标群体的政策设计，并将该框架 用于分析老年数字鸿沟弥合政策设计。

人口老龄化与数字化的交织加剧了老年数字鸿沟问题，老年群体遭遇数字困境，成为 数字社会的弱势群体，解决老年数字鸿沟问题成为国家积极应对人口老龄化的必然要求。 由于老年群体内部对数字技术的掌握和学习能力存在差距，在老年数字鸿沟弥合政策设计 时注意到老年群体内部的异质性。本文运用“政策组合与目标群体异质性”的分析框架对 中央和省级层面老年数字鸿沟弥合的政策文本进行内容分析。

对于中央层面的政策分析，本研究从政策工具、政策目标群体、政策目标三个维度进 行文本解析，尝试回答中央政策如何回应异质性的老年群体多元化需求以实现复杂政策目 标。研究发现，中央政策利用政策工具组合回应不同老年目标群体类型的需求，并通过政 策向老年群体“赋权”，增强其在数字社会的话语权，重新建构老年群体的身份类型。

通过对省级层面老年数字鸿沟弥合政策的比较，讨论当目标群体异质化程度的政策环 境不同时，政策组合回应目标群体有何差异。研究发现，政策设计与政策环境发生互动， 根据所处环境中目标群体异质化程度，向目标群体分配利益。

本研究结果表明，政策组合内政策工具、政策目标、政策环境和政策目标群体四个要 素之间的相互作用、相互配合，可促进政策组合更好地解决复杂政策问题。考虑政策目标 群体的异质性，在政策设计中合理向其分配利益回应需求，可进一步提升政策的有效性。 对于我国现阶段老年数字鸿沟弥合政策组合来说，仍存在政策工具结构失衡、目标群体利 益分配不均衡等问题，可能导致后续动力不足，需要在未来进一步合理设计政策组合，建 立老年数字鸿沟治理的长效机制。

Policy design is one of the important issues in public policy research. With the increasingly complex and changeable governance environment, the academic research focus on policy design has changed from a single policy tool to a policy combination. The target group on the receiving end is also critical to the effectiveness of the policy mix. At present, policy research usually assumes that the same target group is homogeneous, but the change of social structure intensifies the internal differentiation of the same group, and the specific policy target group has diversified demands and behavioral motivations. Based on the theory of "social construction of target groups" and policy mix, this study sets up an analytical framework of "policy mix and policy target group heterogeneity", aiming at studying the policy design of effectively solving the policy problem of target group heterogeneity, and applies this framework to the policy design and analysis of the policy of bridging the digital divide for the elderly.

The integration of population aging and digitalization has intensified the problem of digital divide for the elderly, and the elderly have encountered digital difficulties and become the vulnerable groups in the digital society. Solving the problem of digital divide for the elderly has become an inevitable requirement for the country to actively cope with the aging population. As there are differences in the mastery and learning ability of digital technology among the elderly groups, there are differences in the bridging of the digital gap among the elderly groups. This paper uses the framework of "policy mix and target group heterogeneity" to analyze the content of the text of the central and provincial level policies on bridging the digital divide for the elderly.

As for the policy analysis at the central level, this study analyzes the text from three dimensions: policy tools, policy target groups and policy objectives, and tries to answer how the central policy responds to the diversified needs of heterogeneous elderly groups to achieve complex policy objectives. It is found that the central policy uses the combination of policy tools to respond to the needs of different types of elderly target groups, and "empowers" the elderly

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groups through policies to enhance their voice in the digital society and reconstruct the identity types of the elderly groups.

By comparing the policies on bridging the digital divide for the elderly at the provincial level, this paper discusses how the policy mix responds to the differences of the target groups when the policy environment is different in the degree of heterogeneity of the target groups. It is found that policy design interacts with policy environment and distributes benefits to target groups according to the degree of heterogeneity of target groups in the environment.
The results of this study show that the interaction and cooperation among the four elements of policy instruments, policy objectives, policy environment and policy target groups within the policy mix can promote the policy mix to better solve complex policy problems. Considering the heterogeneity of policy target groups, it can further improve the effectiveness of policies by allocating benefits to them reasonably in policy design. For the current policy combination of bridging the digital divide for the elderly in our country, there are still some problems, such as unbalanced structure of policy tools and unbalanced distribution of interests of target groups, which may lead to insufficient follow-up power, so it is necessary to further design policy combination rationally in the future and establish a long-term mechanism of governance for the digital divide for the elderly.