中国福利彩票发展报告（2021）
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中文摘要
截至2020年底，我国累计发行销售彩票约4.46万亿元，筹集公益金约1.27万亿元，为我国社会福利和社会公益事业的发展做出了重要的贡献。自1987年我国彩票开始发行销售以来，彩票的相关部门持续对管理体系、运营机制和公益金管理方式等进行探索，如今，彩票业已是我国第三次分配的重要组成部分。
本书是福利彩票蓝皮书系列的第四本。本书有两个目标：一是通过定量分析等方法，全面梳理2020年福利彩票市场的销售，公益金筹集、分配和使用情况等，呈现2020年我国福利彩票事业发展的概貌、动态及其趋势等；二是通过定性和定量等方法，试图就我国彩票产业和彩票事业发展不同领域的问题进行分析，并提出有针对性的政策建议。全书在彩票市场动态、彩票事业发展战略选择、彩票事业的社会责任、彩票管理的体制机制、互联网彩票的发展和监管等方面，主要提出了如下论点。
在彩票市场发展方面：2020年受新冠肺炎疫情和疫情防控的影响，我国彩票销售额为3339.51亿元，同比降幅达20.9%，是我国彩票1998年以来销量降幅最大的一年。筹集彩票公益金967.81亿元，同比下降了16.5%。福利彩票机构逐步停售了快开型游戏和视频型游戏，推出了升级版的基诺游戏。不同省份的彩票销量呈现巨大的差异，彩票发展的区域不平衡非常明显。
在彩票事业发展的定位和路径方面：新时期我国彩票业需要通过高质量发展，构建发展新格局，回应政策定位和社会需求，更好地发挥其公共价值。包括彩票机构在内的彩票各相关部门，要树立彩票事业的整体观，强调战略管理的思维，基于彩票的功能和属性特征，围绕彩票的国家属性，做好政治管理，围绕彩票的公益属性，做好使命管理，围绕彩票的人民属性，做好运营管理。
在彩票公益和社会责任建设方面：2020年福利彩票的主管部门和彩票机构等均加强了社会责任建设，把筹集的彩票公益金投入扶老、助残、救孤、济困等社会公益项目中，举办了多种公益活动，强化了福利彩票的公益属性。但总的来说，目前的彩票社会责任建设还存在诸多不足。通过研究发现：与一般企业不同，彩票事业的社会责任具有多层次性、整体性、国家性和负外部性四个显著特征。彩票事业的社会责任框架，表现为由经济、法律、伦理和公益四个层面构成的矩形模型。“十四五”时期彩票业需要通过构建彩票社会责任治理体系、引导理性购彩、加强公益金分配和使用的社会责任、传播彩票的公益精神，履行社会责任，确保其在第三次分配中继续扮演重要角色，更好地支持公益慈善事业。
在彩票管理体制机制方面：我国福利彩票管理体制主要采用的是彩票市场监管、行政业务主管、发行销售管理“三条管理”，中央和地方“条块结合”的混合管理模式。省以下主要采取的是“属地管理”，该模式有其组织优势和监管优势，但也存在不同部门之间沟通不畅、市场化程度不足等问题。需要根据彩票事业发展的新要求，结合不同省份的实际情况，对现有的彩票管理体制进行深入研究，推动体制的改革创新。我国台湾地区在彩票市场结构、彩票管理体制方面，英美法等国家在彩票的市场监管方面，对我国彩票管理体制的优化具有一定的借鉴意义。
在彩票发行的渠道和互联网彩票方面：我国互联网彩票先后经历了放任、国家强力介入、探索管控路径时期的宽松、严格管控四个阶段。基于国际互联网彩票发展的比较，我国应当逐步发展互联网彩票，丰富彩票的发行渠道，与此同时，又要针对其特殊性作单独的安排，构建完善的互联网售彩监管体系，特别是制定严格的市场准入制度，加大违法惩戒力度。
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