The commissioner shall carry out the duties in this section with the participation of the boards of county commissioners, and with full consideration for the interests of counties, to plan and implement a unified, accountable, comprehensive health services system that: promotes accessible and quality health care for all Minnesotans; assures provision of adequate health care within limited state and county resources; avoids shifting funding burdens to county tax resources; provides statewide eligibility, benefit, and service expectations; manages care, develops risk management strategies, and contains cost in all health and human services; and supports effective implementation of publicly funded health and human services for all areas of the state.