The ideas of institutional approach to social policy comprise a set of normative prescriptions. The most fundamental of these is that social welfare is best enhanced through the agency of government. The institutional ideas of some academic writers have been widely applied in policy making and implementation（Wilensky & Lebeaux，1965；Ginsberg，1979；Gough，1979；Marshall，1950；Offe，1984；Titmuss，1968，1971，1974）. Although institutionalism continues to exert considerable influence in Europe，many believe that its impact on social policy thinking in other countries is now depleted. It is suggestion that institutional beliefs about state responsibility for social welfare should place less emphasis on unconditional giving and instead stress the role of state in promoting social investments.