China's social policy system is showing different characteristics at different stages，and the issues of people's livelihood has been paid more and more attention by the government especially in the period of social transition.This paper gives a textual analysis the government work report of the State Council（1954-2013）.Focusing on the 19 key works（social security，health care，housing and employment）in the supply of social welfare，this paper uses the method of group frequency method to analyze the transformation of China's social policy，trying to explore the reasons of social policy change.The results show that the change of social policy targeting at the social justice is related to the stage of social and economic development，which is jointly shaped by government and society，and is increasingly concerned about the emerging social issues.