我国养老服务业政府监管的运行逻辑:一个分析框架及其应用

The operational logic of government regulation in China's elderly care service industry:An analysis framework and its application

基于公共利益理论,构建“生成逻辑—目标—内容—效能”分析框架,以其剖析我国养老服务业政府监管的运行逻辑。我国养老服务业政府监管具有社会、经济和政治三种生成逻辑,社会与经济逻辑互构,形成不良循环,由此决定了社会性与经济性的双重目标:保护老年人的正当权益,促进养老服务业有序竞争、规范发展。现在的监管内容存在硬监管集中于服务场所条件、居家社区板块内容欠缺、在部门间碎片化分布等缺陷。在社会福利的增进/减损和目标实现程度两个维度上考察监管效能:社会性目标实现较好,体现为养老服务质量提升,老年人权益受损事件和有隐患的机构设施减少;机构养老的经济性目标实现不佳,市场规模在许可制时期受到准入监管的负面影响,养老机构及床位的数量有所增长,但入住率持续下滑,社会福利损失持续增加。

This article,based on the theory of public interest,aims to construct an analytical framework of"generative logic-objectives-content-effectiveness"to anatomize the operational logic of government regulation in China's elderly care service industry.The government regulation of China's elderly care service industry has three generative logics:social,economic,and political.Among them,social and economic logics are interdependent,forming a negative cycle,hence determining the dual goals of social and economic aspects of protecting the elderly's rights and interests,and promoting orderly competition and development of the industry.The current regulatory content has defects such as hard regulation focusing on service place conditions,lack of content in the home community sector,and fragmented distribution among departments.Regulatory effectiveness should be investigated from two dimensions:the improvement/reduction of social welfare and degree of achievement of goals.The better achievement of the social goals is reflected in the improvement of the quality of elderly care services,and in the reduction of damage to the elderly and the institutions and facilities with hidden dangers.But the economic goals of institutional elderly care have not been achieved well for that the market size has been negatively affected by access regulations for license,and that institutions and their beds have increased,but occupancy rates continue to decline and therefor social welfare losses continue to expand.