Abstract: It is very hard to keep balance between the equality and the development for the kinds of restriction conditions. Baseline equality is the welfare basic point of the balance between the equality and the development under a series of restriction conditions in the development of social security and social welfare. On the basis of the baseline equality theory,system mechanism has been constructed to express the balance between the equality and the development and inner motivations has been formed to realize the balance between them,and the baseline equality theory has been tested in the development of the social security and the social welfare,too.