政策主体视角下我国城镇居家养老服务模式选择研究
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摘要
随着我国人口老龄化趋势的日益严峻,养老模式选择问题已经成为社会各界关注的焦点。我国学者从国情出发,在借鉴发达国家经验的基础上,提出了一种切实可行的养老方式——居家养老。其中城镇居家养老服务是居家养老政策体系中最主要的内容之一。当前,各地区结合自身特点形成了不同的居家养老服务模式,可以归结为政府主导下的社区提供模式、政府购买居家养老服务模式、居家养老服务券模式、“物业养老”模式四种。在模式运行的过程中,政府、社区、非营利组织和企业等几种主要的政策主体形式以不同的方式参与到政策中来,发挥了重要的作用。但我国城镇居家养老服务政策仍然存在低效运行的现象,其根本原因就在于政策主体的责任定位不清、角色模糊。同时理论界对于居家养老服务模式的综合性考察也不够充分。因此,居家养老服务模式实践必须加强制度设计与理论构建。本文试图从政策主体的视角切入,综合考察居家养老服务实践,从而为居家养老服务模式的选择提供依据。
本文认为,当前应该建立政府主导下多元化居家养老服务模式,构筑以政府为主导、社区为核心、非营利组织为中介、企业为补充的基本框架。同时,完善居家养老服务的各项配套措施,发挥个人、市场、家庭在养老服务供给上的优势,为构建科学合理的城镇居家养老服务模式奠定基础。
At present, the speed of global population aging is accelerating. This trend has been particularly evident in our country, not only the speed of aging of the population has entered a rapid development stage, the number of the elderly population also shows rapid growth momentum. In addition, the aging features of "getting old before getting rich" make our country deal with difficult pension issue than other countries. Because of their own problems and limitations the family support and organization support can no longer meet the wide range needs of elderly. Therefore, choosing an appropriate pattern of aged support has become an urgent problem to solve.
In this condition, China's scholars draw on the experience of developed countries’aged support, propose the housing supporting for aged which is a new pattern of aged support .It finds a good balance point between the family and the community, which is in line with the trend of social development, and has been widespreadly concerned by the community .But there are still many problems and shortcomings in the housing supporting which is a new pattern of aged support. Although it takes a useful attempt in various regions, it doesn’t form a clear system model. At the same time, the role of policy subject is ambiguity in the process of formulation, implementation and evaluation of the housing supporting policy. It’s a serious impediment to China's old-age home services policy development.
In the field of research, for the housing supporting services research has focused on an overview or for a certain kind of model. But the analysis on an overall grasp of policy is rare. It is necessary to strengthen the design of system and the building of theory of the housing support for aged. The paper argues that the root cause of inefficient operation of the urban housing support service for aged is ambiguity of policy subject. Therefore it tries to cut into the policy subject perspective, comprehensive survey of the housing support service for aged, analysis of the role and limitations of the policy subject in the run of the housing support service for aged, so as to provide a basis for the choice of service mode.
This paper examines the four kinds of China's urban housing support service practice, including: government-led and communities, government purchase housing support services, housing support service voucher and "property pension". Government-led and communities follow the leading of the government, establish housing support service stations or points, supply the services by communities. Government purchase housing support service is based on the proposal of government purchase service. Its operation mechanism is that the government announced the budget of public services, the purchase prices of services, service volume and the quality indicators for the community open tender. Successful non-profit sector or social service organizations, use of the funds of government purchase services, completing the service in accordance with the requirements of the government. It’s that the government purchases services from the non-profit sector or social service organizations. Housing support service voucher is to provide direct subsidies to the service object in the form of voucher funds, in order to guarantee resources and services against loss. "Property pension" integrates property management and pension services, in the Government's support and guidance, relying on the property's natural advantages, providing services to the elderly. Through the examination of the four kinds practice, this paper further analysis of the role and limitations of the policy subject in the run of the housing support service for aged. Governments, communities, non-profit organizations and enterprises are the most important policy subject of the housing support service. Government is the foremost part of social policy, bearing the principal responsibility, playing the most important role. Its intervention in the field of benefits is comprehensive, the foundation of social policy. Government act as policy makers and resource providers in the four practice patterns of housing services for aged. On the one hand, community provides the necessary services to residents. On the other hand it has been incorporated into the government's social policy, playing an important role at the grassroots level. In China, the community has played a major role of service provider, no matter what form of participation in housing services for aged. Non-profit organization act as an intermediary organization in government purchase housing support service. Non-profit organization receives government funding, relying on the community for housing service. It effectively links up the government and community through the non-profit organizations, thus improving the efficiency of the policy. And it's as volunteers in the other modes. Enterprises provide funding for the project support, or cooperate with the community, so as to make up for the deficiencies of government's public welfare. The policy subjects play an important role, but they have limitations of locating the roles, mainly reflected in: the absence of the role of government-led results that the attention of its policy planning, policy support efforts, funding and monitoring mechanisms are not paid enough. The function of community is not in place, mainly in the backward of community-based implementation, low enthusiasm of staff, poor quality of service and so on. Non-profit organization’s development is slow, and its resource distribution is inequality. In the interests of the trend, enterprises’enthusiasm to participate in policy is not high, services, the accessibility of content and target is also poor.
In summary, this paper surveying the limitations and shortcomings of social organizations, and unbalanced regional development of economic structure, argues that the current government should establish a government-led and diversified mode of housing support service for aged, and build a basic framework of government-led, community-core, non-profit organizations intermediary and enterprises supplement. Government, community, non-profit organizations and enterprises mutually integrate and complement, playing an important role on housing services for aged. At the same time, it should improve the various supportive measures of housing support services, play the benefits of person, market, families on the supply of services, build the foundation for establishing a scientific and rational mode of housing support service for aged.
本文认为,当前应该建立政府主导下多元化居家养老服务模式,构筑以政府为主导、社区为核心、非营利组织为中介、企业为补充的基本框架。同时,完善居家养老服务的各项配套措施,发挥个人、市场、家庭在养老服务供给上的优势,为构建科学合理的城镇居家养老服务模式奠定基础。
At present, the speed of global population aging is accelerating. This trend has been particularly evident in our country, not only the speed of aging of the population has entered a rapid development stage, the number of the elderly population also shows rapid growth momentum. In addition, the aging features of "getting old before getting rich" make our country deal with difficult pension issue than other countries. Because of their own problems and limitations the family support and organization support can no longer meet the wide range needs of elderly. Therefore, choosing an appropriate pattern of aged support has become an urgent problem to solve.
In this condition, China's scholars draw on the experience of developed countries’aged support, propose the housing supporting for aged which is a new pattern of aged support .It finds a good balance point between the family and the community, which is in line with the trend of social development, and has been widespreadly concerned by the community .But there are still many problems and shortcomings in the housing supporting which is a new pattern of aged support. Although it takes a useful attempt in various regions, it doesn’t form a clear system model. At the same time, the role of policy subject is ambiguity in the process of formulation, implementation and evaluation of the housing supporting policy. It’s a serious impediment to China's old-age home services policy development.
In the field of research, for the housing supporting services research has focused on an overview or for a certain kind of model. But the analysis on an overall grasp of policy is rare. It is necessary to strengthen the design of system and the building of theory of the housing support for aged. The paper argues that the root cause of inefficient operation of the urban housing support service for aged is ambiguity of policy subject. Therefore it tries to cut into the policy subject perspective, comprehensive survey of the housing support service for aged, analysis of the role and limitations of the policy subject in the run of the housing support service for aged, so as to provide a basis for the choice of service mode.
This paper examines the four kinds of China's urban housing support service practice, including: government-led and communities, government purchase housing support services, housing support service voucher and "property pension". Government-led and communities follow the leading of the government, establish housing support service stations or points, supply the services by communities. Government purchase housing support service is based on the proposal of government purchase service. Its operation mechanism is that the government announced the budget of public services, the purchase prices of services, service volume and the quality indicators for the community open tender. Successful non-profit sector or social service organizations, use of the funds of government purchase services, completing the service in accordance with the requirements of the government. It’s that the government purchases services from the non-profit sector or social service organizations. Housing support service voucher is to provide direct subsidies to the service object in the form of voucher funds, in order to guarantee resources and services against loss. "Property pension" integrates property management and pension services, in the Government's support and guidance, relying on the property's natural advantages, providing services to the elderly. Through the examination of the four kinds practice, this paper further analysis of the role and limitations of the policy subject in the run of the housing support service for aged. Governments, communities, non-profit organizations and enterprises are the most important policy subject of the housing support service. Government is the foremost part of social policy, bearing the principal responsibility, playing the most important role. Its intervention in the field of benefits is comprehensive, the foundation of social policy. Government act as policy makers and resource providers in the four practice patterns of housing services for aged. On the one hand, community provides the necessary services to residents. On the other hand it has been incorporated into the government's social policy, playing an important role at the grassroots level. In China, the community has played a major role of service provider, no matter what form of participation in housing services for aged. Non-profit organization act as an intermediary organization in government purchase housing support service. Non-profit organization receives government funding, relying on the community for housing service. It effectively links up the government and community through the non-profit organizations, thus improving the efficiency of the policy. And it's as volunteers in the other modes. Enterprises provide funding for the project support, or cooperate with the community, so as to make up for the deficiencies of government's public welfare. The policy subjects play an important role, but they have limitations of locating the roles, mainly reflected in: the absence of the role of government-led results that the attention of its policy planning, policy support efforts, funding and monitoring mechanisms are not paid enough. The function of community is not in place, mainly in the backward of community-based implementation, low enthusiasm of staff, poor quality of service and so on. Non-profit organization’s development is slow, and its resource distribution is inequality. In the interests of the trend, enterprises’enthusiasm to participate in policy is not high, services, the accessibility of content and target is also poor.
In summary, this paper surveying the limitations and shortcomings of social organizations, and unbalanced regional development of economic structure, argues that the current government should establish a government-led and diversified mode of housing support service for aged, and build a basic framework of government-led, community-core, non-profit organizations intermediary and enterprises supplement. Government, community, non-profit organizations and enterprises mutually integrate and complement, playing an important role on housing services for aged. At the same time, it should improve the various supportive measures of housing support services, play the benefits of person, market, families on the supply of services, build the foundation for establishing a scientific and rational mode of housing support service for aged.
引文
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[11]陈景.对我国城市社区养老服务的探索[J].商业经济,2009(10):28-29.
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[1]王绍光.促进我国民间非营利组织发展的政策建议[G]//王名.清华发展研究报告2003:中国非政府公共部门.北京:清华大学出版社,2004.
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[1]朱志莹.海曙“两走”居家养老模式成全国示范[N].宁波晚报,2005-11-4(1).
[2]庄华峰,杨钰侠,王先进.社会政策导论[M].合肥:合肥工业大学出版社, 2005:85.
[3]庄华峰,杨钰侠,王先进.社会政策导论[M].合肥:合肥工业大学出版社, 2005:86.
[4]本刊编辑部.社区居家养老服务模式的创新——来自广州市的做法和经验[J].中国民政,2007(8):23-28.
[5]朱志莹.海曙“两走”居家养老模式成全国示范[N].宁波晚报,2005-11-4(1).
[6]程伟.居家养老服务券的实践与思索——兼谈购买服务在社会福利社会化中的意义及其政策价值[J].中国民政,2007(4):23-26.
[7]关信平.社会政策概论[M].北京:高等教育出版社,2004:241.
[8]陈德述,卢旭华,李仁军,鞠磊.居家养老模式新探索——记成都市天天新物业“养老”创新服务[J].城市开发,2009(4):36-38.
[9]鲍烨明.城市新型居家养老服务模式探析——探索一种适合中国国情的养老模式[J].中国集体经济,2009(3):189-190.
[10]王绍光.促进我国民间非营利组织发展的政策建议[G]//王名.清华发展研究报告2003:中国非政府公共部门.北京:清华大学出版社,2004:72.
[11]陈景.对我国城市社区养老服务的探索[J].商业经济,2009(10):28-29.
[1]关信平.社会政策概论[M].北京:高等教育出版社,2004.
[2]迈克尔·希尔.理解社会政策[M].李秉勤,贡森,译.北京:商务印书馆,2003.
[3]吉尔伯特.社会福利政策导论[M].黄晨熹等,译.上海:华东理工大学出版社,2003.
[4]陈功.我国养老方式研究[M].北京:北京大学出版社,2003.
[5]阮凤英.多视角下的社会保障[M].北京:经济科学出版社,2006.
[6]周沛.社会福利体系研究[M].北京:中国劳动社会保障出版社,2007.
[7]张良礼.应对人口老龄化:社会化养老服务体系构建及规划[M].北京:社会科学文献出版社,2006.
[8]范斌.福利社会学[M].北京:社会科学文献出版社,2006.
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