《贝弗里奇分析报告》英文版文档格式.docx
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《贝弗里奇分析报告》英文版文档格式.docx
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SocialInsuranceandAlliedServices
ReportbySirWilliamBeveridge
PresentedtoParliamentbyCommandofHisMajesty
November1942
HMSO
CMND6404
Whatfollowsiswhatwouldthesedaysbecalledanexecutivesummaryofthereport,togetherwiththedetailedsectiononAssumptions,MethodsandPrinciples.Thefullreportrunsto300pages.
THREEGUIDINGPRINCIPLESOFRECOMMENDATIONS
6.Inproceedingfromthisfirstcomprehensivesurveyofsocialinsurancetothenexttask-ofmakingrecommendations-threeguidingprinciplesmaybelaiddownattheoutset.
7.Thefirstprincipleisthatanyproposalsforthefuture,whiletheyshouldusetothefulltheexperiencegatheredinthepast,shouldnotberestrictedbyconsiderationofsectionalinterestsestablishedintheobtainingofthatexperience.Now,whenthewarisabolishinglandmarksofeverykind,istheopportunityforusingexperienceinaclearfield.Arevolutionarymomentintheworld’shistoryisatimeforrevolutions,notforpatching.
8.Thesecondprincipleisthatorganisationofsocialinsuranceshouldbetreatedasonepartonlyofacomprehensivepolicyofsocialprogress.Socialinsurancefullydevelopedmayprovideincomesecurity;
itisanattackuponWant.ButWantisoneonlyoffivegiantsontheroadofreconstructionandinsomewaystheeasiesttoattack.TheothersareDisease,Ignorance,SqualorandIdleness.
9.Thethirdprincipleisthatsocialsecuritymustbeachievedbyco-operationbetweentheStateandtheindividual.TheStateshouldoffersecurityforserviceandcontribution.TheStateinorganisingsecurityshouldnotstifleincentive,opportunity,responsibility;
inestablishinganationalminimum,itshouldleaveroomandencouragementforvoluntaryactionbyeachindividualtoprovidemorethanthatminimumforhimselfandhisfamily.
10.ThePlanforSocialSecuritysetoutinthisReportisbuiltupontheseprinciples.Itusesexperiencebutisnottiedbyexperience.Itisputforwardasalimitedcontributiontoawidersocialpolicy,thoughassomethingthatcouldbeachievednowwithoutwaitingforthewholeofthatpolicy.Itis,firstandforemost,aplanofinsurance-ofgivinginreturnforcontributionsbenefitsuptosubsistencelevel,asofrightandwithoutmeanstest,sothatindividualsmaybuildfreelyuponit.
THEWAYTOFREEDOMFROMWANT
11.TheworkoftheInter-departmentalCommitteebeganwithareviewsofexistingschemesofsocialinsuranceandalliedservices.ThePlanforSocialSecurity,withwhichthatworkends,startsfromadiagnosisofwant-ofthecircumstancesinwhich,intheyearsjustprecedingthepresentwarfamiliesandindividualsinBritainmightlackthemeansofhealthysubsistence.DuringthoseyearsimpartialscientificauthoritiesmadesocialsurveysoftheconditionsoflifeinanumberofprincipaltownsinBritain,includingLondon,Liverpool,Sheffield,Plymouth,Southampton,YorkandBristol.Theydeterminedtheproportionsofthepeopleineachtownwhosemeanswerebelowthestandardassumedtobenecessaryforsubsistence,andtheyanalysedtheextentandcausesofthatdeficiency.Fromeachofthesesocialsurveysthesamebroadresultemerges.Ofallthewantshownbythesurveys,fromthree-quarterstofive-sixths,accordingtotheprecisestandardchosenforwant,wasduetointerruptionorlossofearningpower.Practicallythewholeoftheremainingone-quartertoone-sixthwasduetofailuretorelateincomeduringearningtothesizeofthefamily.Thesesurveysweremadebeforetheintroductionofsupplementarypensionshadreducedtheamountofpovertyamongstoldpersons.Butthisdoesnotaffectthemainconclusiontobedrawnfromthesesurveys:
abolitionofwantrequiresadoublere-distributionofincome,throughsocialinsuranceandbyfamilyneeds.
12.Abolitionofwantrequires,first,improvementofStateinsurancethatistosayprovisionagainstinterruptionandlossofearningpowerAlltheprincipalcausesofinterruptionorlossofearningsarenowthesubjectofschemesofsocialinsurance.If,inspiteoftheseschemes,somanypersonsunemployedorsickoroldorwidowedarefoundtobewithoutadequateincomeforsubsistenceaccordingtothestandardsadoptedinthesocialsurveys,thismeansthatthebenefitsamounttolessthansubsistencebythosestandardsordonotlastaslongastheneed,andthattheassistancewhichsupplementsinsuranceiseitherinsufficientinamountoravailableonlyontermswhichmakemenunwillingtohaverecoursetoit.Noneoftheinsurancebenefitsprovidedbeforethewarwereinfactdesignedwithreferencetothestandardsofthesocialsurveys.Thoughunemploymentbenefitwasnotaltogetheroutofrelationtothosestandards,sicknessanddisablementbenefit,oldagepensionsandwidows’pensionswerefarbelowthem,whileworkmen’scompensationwasbelowsubsistencelevelforanyonewhohadfamilyresponsibilitiesorwhoseearningsinworkwerelessthantwicetheamountneededforsubsistence.Topreventinterruptionordestructionofearningpowerfromleadingtowant,itisnecessarytoimprovethepresentschemesofsocialinsuranceinthreedirections:
byextensionofscopetocoverpersonsnowexcluded,byextensionofpurposestocoverrisksnowexcluded,andbyraisingtheratesofbenefit.
13.Abolitionofwantrequires,second,adjustmentofincomes,inperiodsofearningaswellasininterruptionofearning,tofamilyneeds,thatistosay,inoneformoranotheritrequiresallowancesforchildren.Withoutsuchallowancesaspartofbenefit-oraddedtoit,tomakeprovisionforlargefamilies,nosocialinsuranceagainstinterruptionofearningscanbeadequate.But,ifchildren’sallowancesaregivenonlywhenearningsareinterruptedandarenotgivenduringearningalso,twoevilsareunavoidable.First,asubstantialmeasureofacutewantwillremainamongthelowerpaidworkersastheaccompanimentoflargefamilies.Second,inallsuchcases,incomewillbegreaterduringunemploymentorotherinterruptionsofworkthanduringwork.
14.Byadoublere-distributionofincomethroughsocialinsuranceandchildren’sallowances,want,asdefinedinthesocialsurveys,couldhavebeenabolishedinBritainbeforethepresentwar.Asisshowninpara.445,theincomeavailabletotheBritishpeoplewasampleforsuchapurpose.ThePlanforSocialSecuritysetoutinPartVofthisReporttakesabolitionofwantafterthiswarasitsaim.Itincludesasitsmainmethodcompulsorysocialinsurance,withnationalassistanceandvoluntaryinsuranceassubsidiary,methods.Itassumesallowancesfordependentchildren,aspartofitsbackground.Theplanassumesalsoestablishmentofcomprehensivehealthandrehabilitationservicesandmaintenanceofemployment,thatistosayavoidanceofmassunemployment,asnecessaryconditionsofsuccessinsocialinsurance.Thesethreemeasures-ofchildren’sallowances,healthandrehabilitationandmaintenanceofemployment-aredescribedasassumptionsA,BandCoftheplan;
theyfallpartlywithinandpartlywithouttheplanextendingintootherfieldsofsocialpolicy.Theyarediscussed,notinthedetailedexpositionoftheplaninPartVoftheReport,butinPartVI,whichisconcernedwithsocialsecurityinrelationtowiderissues.
15.Theplanisbasedonadiagnosisofwant.Itstartsfromfacts,fromtheconditionofthepeopleasrevealedbysocialsurveysbetweenthetwowars.IttakesaccountoftwootherfactsabouttheBritishcommunity,arisingoutofpastmovementsofthebirthrateandthedeathrate,whichshoulddominateplanningforitsfuture;
themaineffectsofthesemovementsindeterminingthepresentandfutureoftheBritishpeopleareshownbyTableXIinpara.234.Thefirstofthetwofactsistheageconstitutionofthepopulation,makingitcertainthatpersonspasttheagethatisnowregardedastheendofworkinglifewillbeamuchlargerproportionofthewholecommunitythanatanytimeinthepast.ThesecondfactisthelowreproductionrateoftheBritishcommunitytoday:
unlessthisrateisraisedverymateriallyinthenearfuture,arapidandcontinuousdeclineofthepopulationcannotbeprevented.ThefirstfactmakesitnecessarytoseekwaysofpostponingtheageofretirementfromworkratherthanofhasteningIt.Thesecondfactmakesitimperativetogivefirstplaceinsocialexpendituretothecareofchildhoodandtothesafeguardingofmaternity.
16.Theprovisiontobemadeforoldagerepresentsthelargestandmostgrowingelementinanysocialinsurancescheme.TheproblemofageisdiscussedaccordinglyinPartIIIoftheReportasoneofthreespecialproblems;
themeasuresproposedfordealingwiththisproblemaresummarisedinparas.254-257.Briefly,theproposalistointroduceforallcitizensadequatepensionswithoutmeanstestbystagesoveratransitionperiodoftwentyyears,whileprovidingimmediateassistancepensionsforpersonsrequiringthem.Inadoptingatransitionperiodforpensionsasofright,whilemeetingimmediateneedssubjecttoconsiderationofmeans,thePlanforSocialSecurityinBritainfollowstheprecedentofNewZealand.ThefinalrateofpensionsinNewZealandishigherthanthatproposedinthisPlan,butisreachedonlyafteratransitionperiodoftwenty-eightyearsascomparedwithtwentyyearssuggestedhere;
aftertwentyyears,theNewZealandrateisnotverymateriallydifferentfromthebasicrateproposedforBritain.TheNewZealandpensionsarenotconditionaluponretirementfromwork;
forBritainitisproposedthattheyshouldberetirementpensionsandthatpersonswhocontinueatworka
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