銀色大潮下的養老模式現狀與問題探討——以北京市社區養老服務驛站為例

近年來，隨著人口老齡化速度的加快，導致越來越多的高齡老人、失能失智老人和空巢老人亟需得到照顧，這也對中國社會化養老服務體系的建設與完善提出了迫切需求。面對上述背景，作為首都的北京市在2016年推出了「社區養老服務驛站」政策，試圖更有效的緩解老年人口激增與養老配套設施不健全的矛盾。現有關於社區養老服務驛站的研究，較多只是側重於社區養老服務驛站在政策層面對中國大陸養老模式的推進作用，對於社區養老服務驛站的實際運營中存在的問題，尤其是問題的成因方面，更多是僅僅從理論上進行的探索或是淺嘗輒止。因此，本文從多元利害關係人角度出發，將利害關係人分為老年人群體（社會團體）、制定政策的民政部門（政府機關與政治團體）和社區養老服務驛站的管理及工作人員（專業團體），並將主要研究重心主要落在政策的使用者（user）與政策的提供者（provider），即老年人群體（社會團體）和社區養老服務驛站的管理及工作人員（專業團體）上，通過對不同行為主體的深度訪談研究，試圖發現北京市養老服務驛站所存在哪些問題，並且對不同行為主體認為造成這種現象的原因進行匯總，全面性的發現造成北京市社區養老服務驛站存在問題的深層原因是什麼。為提高訪談的客觀性與代表性，本文在朝陽區與通州區評級為三星和四星的社區養老服務驛站中，採用隨機抽樣的形式中共抽取6家作為訪談樣本，並對其管理人員與一線服務人員作及老年人群體進行深度訪談。通過調查研究，本文發現北京市社區養老服務驛站現階段主要問題為養老服務的供給與需求存在脫節；驛站工作人員門檻低、數量少，驛站接待能力弱；服務品質欠佳醫療服務較少，醫養結合能力弱；街道對驛站監管不到位，社會組織制度性規範尚未形成。更進一步，其深層原因為驛站網點獲取難度大，佔地面積小；驛站合作企業性質多為非公益性；非京籍老人養老問題未被考慮；驛站人員工資低、社會地位低；符合驛站要求的醫院少，驛站選擇區間小；社區自身管理差，難以為驛站提供支持；志願者管理制度不完善，服務意願低。通過此研究，希望可以為北京市養老驛站的可持續發展提供政策參考。

關鍵字

銀色大潮；社區居家養老；服務驛站；利害關係人

並列摘要

In recent years, with the acceleration of the aging population, more and more elderly people, the disabled, the mentally retarded and the empty nest elderly need to be taken care of, which also puts forward an urgent demand for the construction and improvement of China's social pension service system. In the face of the above background, Beijing, as the capital, launched the policy of "community pension service station" in 2016, trying to more effectively alleviate the contradiction between the surge of the elderly population and the inadequate supporting facilities for the elderly. The existing research on community pension service stations mainly focus on the role of community pension service stations in promoting the pension model in mainland China at the policy level, and the problems existing in the actual operation of community pension service stations, especially the causes of the problems, are more only theoretical exploration or superficial. Therefore, from the perspective of multiple stakeholders, this paper divides stakeholders into elderly groups (social groups), civil affairs departments (government agencies and political groups) that make policies, and management and staff (professional groups) of community pension service stations. The main research focus is mainly on the use of policies and the provider of policies, that is, the elderly groups (social groups) Through in-depth interviews with different actors, I try to find out what problems exist in Beijing's elderly care service stations, and summarize the reasons for this phenomenon, and comprehensively find out the deep-seated problems in Beijing's community elderly care service stations. In order to improve the objectivity and representativeness of the interview, this paper selects 6 community pension service stations in Chaoyang District and Tongzhou District which are rated as three stars and four stars by random sampling and conducts in-depth interviews with their managers, front-line service personnel and the elderly population. Through the investigation and research, this paper finds that the main problems of Beijing community pension service stations at this stage are the disconnection between the supply and demand of pension service; the low threshold and quantity of post staff, the weak reception capacity of the post; the poor quality of service, the less medical service, the weak ability to combine medical care and pension; the inadequate supervision of post stations by streets, the lack of institutional norms of social organizations. Furthermore, the deep-seated reasons are that it is difficult to obtain the post network, which covers a small area; the nature of the post cooperative enterprises is mostly non-public welfare; the pension problem of non-Beijing old people has not been considered; the post personnel have low wages and social status; there are few hospitals that meet the requirements of the post, and the post-selection interval is small; the community's own management is poor, which makes it difficult to provide support for the post; the volunteer management system is endless Good, low willingness to serve. Through this study, I hope to provide a policy reference for the sustainable development of the Beijing pension post.