This paper constructs a three-dimensional analytical framework encompassing policy phases, policy instruments, and policy actors, and quantitatively analyzes 110 outpatient guarantee policy texts with policy coding classification statistics and network analysis methods based on community detection algorithm. The research reveals distinct characteristics in the evolution of outpatient guarantee policies across different policy phases. Notable imbalances are observed in the selection of policy instruments, with a leaning toward environmental policy tools and relatively fewer application of supply-side and demand-side policy instruments. Additionally, an internal structural imbalance is identified within various categories of policy instruments, indicating limited utilization of secondary tools such as the policy promotion, supervision and management, and assessment and evaluation of outpatient guarantee policies. The configuration of the policy actor network shifts from a larger and loosely connected pattern towards a more streamlined and compact structure. This study proposes to reinforce top-level design for outpatient guarantee policies to ensure a steady and prudent reform progression. Moreover, a balanced allocation of outpatient guarantee policy instruments is recommended to enhance synergistic effect, while optimizing policy actor collaboration is essential for effective communication and cooperation.