政府购买养老服务:角色冲突、责任风险与治理创新

Government Purchase of the Aged Care Services:Role Conflicts,Liability Risks and Governance Innovation

政府购买养老服务是促进养老服务专业、高效、灵活供给的重要形式,深受地方政府青睐。但养老服务购买合同中,政府同时充当了购买人与监管人,引发养老服务购买实践中的角色冲突。当政府角色冲突未能及时化解时将产生责任风险,包括普遍性的逆向选择和道德风险,独具养老服务特色的合同缔结、履行和违约风险,以及购买人行政优益权滥用风险。风险治理需要凝结创新思维,引入“双阶理论”区分不同阶段政府角色的不同性质,阐明政府在不同阶段的公私法责任,协调角色冲突。针对政府承担的公私法责任风险,分别提出控制型和绩效型问责模式,以化解此责任风险。

The government purchase of the aged care services is an important model to promote the professional,efficient and flexible supply of the aged care services,which is favored by the local governments.However,in the purchase contract of the aged care services,the government acts as both the buyer and the supervisor,which leads to the role conflicts in the actual purchase of the aged care services.When the government-related role conflicts cannot be resolved in time,liability risks will arise,including the universal adverse selection,moral hazard,the contract conclusion,performance and breach risks with the unique characteristics of the old age services,as well as the buyer's abuse risk of administration preferentiality.Risk governance needs to rely on innovative thinking,introduce the“two-level theory”to distinguish the different natures of the government roles in different stages,clarify the public and private legal responsibilities of the government in different stages,and relieve role conflicts.Aiming at the public and private legal liability risks borne by the government,the paper proposes the control and performance accountability models respectively to resolve the liability risks.