中国福利彩票发展报告（2020）
中文摘要
本书是福利彩票蓝皮书系列的第三本。本书出版有两个目的：一是通过全面梳理2019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2019年我国福利彩票事业发展的概貌及趋势等；二是通过多个专题性的研究文章，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。
通过统计学方法对2019年福利彩票各种游戏市场表现、省级区域的销量变化进行定量分析发现：政府规制政策等因素引发了2019年我国彩票行业的结构性减速；大型乐透型游戏增长乏力，游戏多样性不足，不能满足主流市场人群的需求；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。监管部门和彩票机构需要在彩票品种多样化、游戏设计的低博弈性和娱乐性兼顾、彩票营销渠道等方面进行探索和创新。
经过30余年的演变，我国彩票运行从早期的奖券运行模式到部门彩票运行模式，再发展到当前的国家彩票运行模式。现有模式在推动彩票的国家属性、扩宽公益金使用范围方面具有优势。由于分割了彩票发行机构与彩票公益金使用部门，现有模式弱化了彩票的社会责任形象。
基于对彩票公益金监管体制机制的考察，本书认为，目前公益金的分配使用存在资金分配结构不够合理、第三方监管缺乏、资金封闭管理和使用效率不高等问题，建议公益金监管采取“公益信托+基金会”的模式。公益信托使彩票公益金转换为彩票公益基金，而基金会的诸多特征可提升公益金使用的透明度和绩效。
彩票专营是我国彩票管理的重要特征。彩票专营和烟草专卖在政府考量、法律依据、运行机制、市场化程度、国际接轨程度五个维度有所区别。为了进一步完善彩票专营，需要以专卖制度为基础，构建适度竞争机制，减少对行政化路径的依赖等。
新闻报道在福彩事业中发挥重要作用。通过对福彩新闻报道背后的议程设置进行研究，以及对中日两国的彩票新闻报道进行比较，发现福彩新闻存在公益主题色彩不够明显、报道方式全而未融、新媒体发布频率较低、价值导向不足、福彩主题缺乏联动等问题，需要在提升福彩公益形象、打造全媒体中心、注重新闻价值导向等方面进行改进。
彩票本质上属于国民收入和财富的第三次分配，是中国特色社会主义市场经济下的一种慈善募捐。近些年彩票产业发展引发了一些问题。彩票要重新回归第三次分配的定位，体现彩票的人民属性、国家属性和公益属性。
对于彩票的研究和政策分析往往忽略了彩票事业是包含彩票销售市场和公益金分配使用市场的统一整体。从彩票事业的整体观出发，我国彩票事业的高质量发展，需要在经济高质量、社会高质量和治理高质量三个方面着力推进。
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