我国养老服务体制的健全研究

　　摘 要

　　养老服务的长期实践，推动了我国养老服务体系的建立和老年消费市场的形成，可以说，我国养老服务的发展取得了巨大成就。但总体上看，诸如养老服务和产品供给不足、市场发育不成熟、扶持政策落实不到位及法律法规缺失等问题还十分突出。

　　本文认为，要保障养老服务在日益严峻的人口老龄化背景下平稳较快发展，务必要加快我国养老服务的立法进度。立法上，应以基本法的形式对养老服务加以专门规范，制定《养老服务促进法》，以提高养老服务在整个国家的法律地位。具体制度的构建上，应当科学规划、明确社区居家养老服务设施的配备和机构养老服务的设立条件，建立从业人员的准入、考核制度，完善的土地、税收等优惠政策；同时还应建立健全养老服务的保障与激励措施，进一步完善养老服务的纠纷处理机制和法律责任制度。

　　本文共分为四大部分：

　　第一部分是前言。这部分主要从研究背景、研究意义以及国内外关于养老服务的研究现状等角度展开分析，以为下文写作起引导作用。

　　第二部分是对养老服务基本问题的阐述。为明确本文的研究对象，本文将首先对养老服务进行界定，然后对养老服务的基本知识作简要阐述，最后通过对我国养老服务制度发展脉络的梳理，评析自人口老龄化以来，我国养老服务制度的现状。当前，我国养老服务整体水平不高，养老服务市场尚不成熟，诸如服务水平不高、竞争机制不完善、服务人员整体素质偏低等问题仍普遍存在。上述问题的存在直接制约了我国养老服务的发展，究其根本，法律制度的缺失是我国养老服务发展的主要制约因素。

　　第三部分是关于养老服务立法的必要性和可行性的分析。如今，我国已制定了大量的政策性文件规范和引导养老服务的发展，并取得了显着成果，包括《中华人民共和国老年人权益保障法》在内的许多规范性文件对养老服务作了相应规定。然而由于大部分文件存在缺乏实际可操作性、法律效力不高等问题，导致养老服务的发展缺乏法律的有效保障。加快养老服务专门立法，提高养老服务的法律地位，既有利于解决养老服务的法律适用问题，为养老服务的发展提供法律保障；还有利于完善养老服务法律制度，健全养老服务规范体系。目前，我国在发展养老服务过程中已取得了丰富的实践经验并制定了大量的规范性文件，再加上国外养老服务立法的有益借鉴，我国养老服务具备了立法的内部条件和外部环境。

　　第四部分是对我国养老服务法律制度具体构建的思考。本文认为，养老服务立法首先应明确的问题是其法律定位，根据养老服务的性质及“养老服务法”的调整对象，养老服务立法应坚持经济法的发展方向。立法选择上，应以基本法即《养老服务促进法》的形式对养老服务进行专门规范，并建立完善的养老服务法律制度。如明确规定社区居家养老服务的建设、机构养老服务的配套设施，从业人员的资格考核制度、养老服务市场的培育、价格机制及优惠制度的实施等。在此基础上进一步完善部门法规范和地方立法，从而建立起完善的养老服务法律体系。

　　关键词：养老服务， 立法， 制度构建。

　　Abstract

　　The long-term practice of endowment service, promoted the formation of old-aged servicesystem and consumer market in our country. So, the development of pension service in our countryhas made great achievements. But there are still some deficiencies, such as pension services andproducts market are not mature, the implementation of supportive policies are not in place, thescarcity of laws and regulations are still very prominent. This thesis believes to ensure stable andrapid development of endowment service in the background of aging population, which will besure to accelerate the progress of legislation of endowment service in china. The legislation shouldbe based on the basic law, the form of pension services to specifically regulate, develop “old-agedservice promotion law”. In order to improve the service for the aged in the legal status of the wholecountry, a specific system, the establishment of conditions should be scientific planning, clearcommunity home-based care services facilities and the pension service, establishing employeesaccess, assessment system, preferential tax policies of land, perfect; also shall establish and perfectthe guarantee and incentive measures to further improve the pension services, pension servicedisputes mechanism and legal liability system.

　　This thesis is divided into four parts:

　　The first part is preface. This part mainly launches from the research background, researchsignificance, the domestic and foreign research status of pension service perspective, in order toprepare the writing for next part of the thesis.

　　The second part is on the basic problem of endowment service description. As the object ofstudy of this thesis, which will be the first on the endowment service is defined, then the basicknowledge of pension service briefly, by the end of the development of China's old-aged servicesystem of carding, since entering the aging of the population, status of old-aged service system inchina. Overall, the pension service in China is still at the initial stage of development, the pensionservice market is not mature, common problems such as the service level is not high, competitionmechanism is not perfect, the service personnel overall quality is still low, the pension servicedevelopment faces many problems. The existence of these problems led directly to thedevelopment level of service for the aged in our country is not high. However, by its nature, lack oflegal system is the main obstacle to the development of nursing service in china.

　　The third part is the analysis of necessity and feasibility of legislation of endowment service.

　　At present, China has developed a policy file to a large number of and to guide the development ofpension services, and achieved remarkable results, many normative documents including the“protection of the rights and interests of the people's Republic of China” the elderly, made thecorresponding provisions of pension service. However, because most documents are lack ofpractical operability, the legal effect is not high, led to the development of pension service lacks theeffective guarantee of the law. Speed up the pension service special legislation, improve the legalstatus of pension service, can help to solve the problem of application of law of endowment service,provide legal guarantee for the development of endowment service; also to improve the legalsystem of endowment service, improve the pension service standard system. At present, in thedevelopment of China's old-aged service process has gained rich experience and the developmentof the endowment service of normative documents large, useful reference and foreign servicepension legislation, the pension service in China with the internal conditions and externalenvironment legislation.

　　The fourth part is the thinking of constructing the legal system of our countries' old-agedservice. This thesis thinks, pension service legislation should first clear the problem is its legalposition, adjust according to the nature of the object of pension services and “pension services,pension service law” legislation should adhere to the direction of the development of economic law.

　　Legislative choice, should be based on the basic law is the “endowment service promotion law” inthe form of pension services for special specification, and establish a perfect legal system ofpension service. Facilities such as clear construction, community service of aged care at homepension service, qualification examination system, pension service market practitioners of thecultivation, the price mechanism and the implementation of preferential system. On this basis,further improve the department law and local legislation, to establish and perfect the legal systemof endowment service.

　　Key Words: Pension Services, Legislation, System Construction

    目 录

　　1 研究的缘起……1

　　1.1 研究背景 ……1

　　1.2 国内外文献研究……2

　　1.2.1 国内文献研究……2

　　1.2.2 国外文献研究……3

　　1.3 研究意义 ……4

　　1.4 研究思路与研究方法……4

　　1.4.1 研究思路……4

　　1.4.2 研究方法……4

　　2 养老服务及其制度评析 ……6

　　2.1 养老服务的界定……6

　　2.1.1 养老服务的性质……6

　　2.1.2 养老服务的特征……8

　　2.2 我国养老服务制度的发展脉络及不足 ……9

　　2.2.1 养老服务的制度演进 ……9

　　2.2.2 现行养老服务制度的不足 ……12

　　3 我国养老服务立法的必要性和可行性……17

　　3.1 养老服务立法的必要性……17

　　3.1.1 解决养老服务突出问题的需要 ……17

　　3.1.2 弥补现有政策手段不足的需要 ……18

　　3.1.3 规范养老服务市场的需要 …… 20

　　3.1.4 建立健全养老服务规范体系的内在要求…… 21

　　3.2 养老服务立法的可行性……22

　　3.2.1 规范依据--养老服务规范性文件 ……22

　　3.2.2 理论和实践依据--养老服务理论研究和实践经验 ……23

　　3.2.3 域外法参照--发达国家养老服务立法的有益借鉴 ……24

　　4 我国养老服务法的构建 ……27

　　4.1 养老服务法的定位……27

　　4.1.1 属性定位……27

　　4.1.2 模式定位 …… 28

　　4.1.3 层次定位 …… 29

　　4.2 养老服务立法的基本思路…… 30

　　4.2.1 法律名称 …… 30

　　4.2.2 立法目的 …… 31

　　4.2.3 法律原则 …… 31

　　4.2.4 法律结构 …… 34

　　4.3 养老服务法的具体设计 …… 35

　　4.3.1 养老服务的类型 …… 35

　　4.3.2 保障与激励制度 …… 37

　　4.3.3 市场开拓 …… 39

　　4.3.4 价格机制 …… 40

　　4.3.5 监管与评估机制 …… 40

　　4.3.6 法律责任 …… 41

　　5 结语 ……43

　　参考文献…… 44