《贝弗里奇分析报告》英文版.docx

《贝弗里奇分析报告》英文版.docx

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《贝弗里奇分析报告》英文版

《贝弗里奇报告》英文版

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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