Whether it is a system dilemma or various suspicions, in the final analysis, it is a conceptual dilemma. Behind the high threshold of non-governmental public welfare organizations is the limitation of understanding of social management. With the development of society, social needs are becoming more and more diversified, and the services that need to be provided by society are becoming more and more detailed. Some of these needs rely on government management, some rely on the market, and some rely on diversified non-governmental public welfare organizations. This is an important aspect of strengthening and innovating social management.