民营养老机构监管问题研究

发布时间：2018-08-05 15:21

【摘要】：中国已进入老龄化社会,养老机构尤其是民营养老机构在满足高龄、失能、失智等老年人群体的养老需求上有着不可或缺的作用,然而近年来各类恶性事件的频发说明在民营养老机构的监管上还存在很多漏洞,侵害了老年人合法权益的同时也限制了民营养老机构的发展。本文首先界定了民营养老机构的概念和性质,梳理了现有关于民营养老机构的法律体系,介绍了民营养老机构当前发展和监管概况;在此基础上结合案例分析,分析了目前民营养老机构监管中存在的一些问题,如法律保障不足,政府监管一体、社会监管不足,对营利性和非营利性民营养老机构的双重监管抑制了社会投资积极性,监管重心上轻事前预防重事后惩治,激励性监管政策落实不到位、信息化监管缺失等。造成这一系列监管问题的原因是多方面的,从公权力角度来说,主要有治国手段上的"政策本位",社会福利监管体制不顺,缺乏分类管理和评估制度,政府"亡羊补牢"式的监管理念以及支持民营养老机构发展的配套政策不完善等;从民营养老机构的角度来说,主要有运营资金不足、管理和服务理念陈旧、管理制度不完善以及初期定位不合理等原因;老人及其家属法律意识淡薄也是监管问题频发的一个因素;从社会支持的角度来说,传统孝道、社会对民营养老机构及其护工的偏见、缺乏主人翁监督意识等都是对民营养老机构发展的不利因素。结合国际先进经验,我国应当尽快明确法律依据、提高法律的可操作性;建立以政府监管为主的协同监管机制,赋予民政部门在民营养老机构监管方面的统领权力,形成民政部门统领基础上的众部门合力监管,同时还要着重建立对监管者的监管机制;应当创新监管方向,合理定位民营养老机构的性质,将政府激励建立在完善的分类管理制度、定期检查与评估制度和信息披露制度上;要摒弃"亡羊补牢"式监管理念,重视对民营养老机构的准入监管和日常监管,并在事后追责和救急的同时注重查漏补缺,完善相关制度;另外要创造有利于民营养老机构发展的外部环境,创新和落实民营养老机构融资、土地、人才等政策,尽快建立全国性长期护理保险制度,加大养老宣传力度,并引入固定的志愿者队伍定期提供志愿服务,使得民营养老机构及入住老人与外界建立长期有效的联系。
[Abstract]:China has entered an aging society. Pension institutions, especially private pension institutions, play an indispensable role in meeting the needs of the elderly, such as the elderly, disabled, and mentally retarded. However, the frequent occurrence of various malignant events in recent years shows that there are still many loopholes in the supervision of private pension institutions, which infringes on the legitimate rights and interests of the elderly and restricts the development of private pension institutions. This paper first defines the concept and nature of private pension institutions, combs the existing legal system of private pension institutions, introduces the current development and supervision of private pension institutions, on the basis of this, combined with a case study, This paper analyzes some problems existing in the supervision of private pension institutions, such as inadequate legal protection, government supervision and social supervision. The dual supervision of for-profit and non-profit private pension institutions inhibits the enthusiasm of social investment. Supervision focuses on prevention and punishment in advance, incentive supervision policy is not in place and information supervision is missing. The reasons for this series of regulatory problems are various. From the perspective of public power, there are mainly "policy-oriented" means of governing the country, the social welfare regulatory system is not good, and there is a lack of classified management and evaluation system. From the perspective of private pension institutions, the government mainly has insufficient operating funds, outdated management and service concepts, and so on. The government's "undone" supervision concept and supporting policies to support the development of private pension institutions are not perfect, and from the perspective of private pension institutions, there are mainly inadequate operating funds, obsolete management and service concepts, and so on. The imperfect management system and unreasonable initial positioning; the weak legal awareness of the elderly and their families is also a factor in the frequent occurrence of regulatory problems; from the point of view of social support, traditional filial piety, The prejudice of the society to the private pension institutions and their nursing workers and the lack of the sense of supervision of the masters are all the unfavorable factors to the development of the private pension institutions. In combination with advanced international experience, our country should clarify the legal basis as soon as possible, improve the operability of the law, establish a cooperative supervision mechanism based on government supervision, and endow the civil administration departments with the leading power in the supervision of private pension institutions. Forming the joint efforts of various departments on the basis of the leadership of the civil affairs departments, and at the same time focusing on the establishment of a supervisory mechanism for the regulators, the direction of supervision should be innovated, and the nature of private pension institutions should be rationally positioned. It is necessary to set up government incentives on the basis of perfect classified management system, regular inspection and evaluation system and information disclosure system, abandon the idea of "repairing the lost sheep" type of supervision, attach importance to the admission supervision and daily supervision of private pension institutions. And at the same time, we should pay attention to filling gaps and improving the relevant systems. In addition, we should create an external environment conducive to the development of private pension institutions, and innovate and implement policies on financing, land and talents of private pension institutions. Establish the national long-term care insurance system as soon as possible, increase pension publicity, and introduce a fixed contingent of volunteers to provide voluntary services on a regular basis, so that private pension institutions and the elderly to establish long-term and effective contact with the outside world.
【学位授予单位】：山东大学
【学位级别】：硕士
【学位授予年份】：2017
【分类号】：F719;D669.6

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