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    實施食品安全戰略需要法治保障

    徐明  2019年05月08日08:07  來源:中國社會科學報

    實施食品安全戰略、推進食品安全治理體系和治理能力現代化是一項系統工程,需要堅定不移走中國特色社會主義食品安全法治道路,更好發揮法治在食品安全戰略實施中的保障作用,構建統一高效的食品安全監管體制,形成嚴密高效的食品安全社會共治治理體系。

    “固根本”的法治保障

    黨的十八大以來,以習近平同志為核心的黨中央深入實施健康中國戰略和食品安全戰略,深入謀劃食品安全法治,全面修改《食品安全法》,制定《土壤污染防治法》,加快修訂《農產品質量安全法》《食品安全法實施條例》和《土地復墾條例》,推進糧食法、肥料管理條例等立法進程,強化食品安全監管行政問責制度和監督回應制度,建立以司法追究為主、行政追究為輔的違法失職行為責任追究體制,更好發揮法治在食品安全戰略實施中“固根本”的作用。

    2015年新修改的《食品安全法》規定“食品安全工作實行預防為主、風險管理、全程控制、社會共治,建立科學、嚴格的監督管理制度”,確立了食品安全法治發展的基本原則,強調推進食品安全多元共治,明確多元共治主體分工。

    明確政府作為第一責任主體的地位。針對目前存在的問題,政府監管應從以下方面著力:一是應將注重事后處置轉變為注重事前預防性監管,堅持預防為主的食品安全監管理念。二是明晰不同執法主體權責,建立統一的執法協調機制。目前的執法主體有市場監督管理、衛生、農業等諸多職能部門,可能造成互相推諉、形成監管盲區的弊端。現行《食品安全法》規定縣級政府對當地食品安全負總責,應明確不同執法主體的監管職責,建立食品安全委員會,負責統一協調食品安全執法。三是將食品安全納入地方政府政績考評內容,建立嚴格的食品安全追責制度。

    《食品安全法》規定,食品生產經營者應當依照法律、法規和食品安全標準從事生產經營活動,保證食品安全,誠信自律,對社會和公眾負責,接受社會監督,承擔社會責任。還應依據《食品安全法》建立誠實經營和利益同向、違法經營和利益逆向的獎懲制度,規范食品經營者的行為。

    食品行業協會應制定相應行業規范和行業標準,與政府進行互動式溝通交流;新聞媒體對食品安全事件的曝光,對督促相關部門履行監管職能和企業落實社會責任起到重要作用,也拓寬了民眾對食品信息的知情權;社會公眾作為食品安全最深刻的感知者,要參與到食品安全政策和食品安全標準的制定中來,舉報違法食品生產經營者的行為,彌補政府監管力量的不足,讓違法經營者沒有藏身之地。

    “穩預期”的法治保障

    黨的十八大以來,以習近平同志為核心的黨中央踐行食品安全法治,貫徹“創新、協調、綠色、開放、共享”發展理念,落實“最嚴謹的標準,最嚴格的監管,最嚴厲的處罰,最嚴肅的問責”要求,制定實施“體制統一、法治統一、標準統一、執法統一、形象統一、文化統一”標準,開辟了食品安全法治實踐新境界。要以《食品安全法》為基礎,更好發揮法治在食品安全戰略實施中“穩預期”的作用。

    建立食品安全風險交流制度。目前,我國《食品安全法》《食品安全信息公布管理辦法》等相關法律法規對食品安全風險交流制度作了初步規定,但只是單向的信息搜集。鑒于食品安全本身的復雜性,應建立雙向互動式的食品安全風險交流制度,包括信息公開、信息共享平臺和信息回應機制等。

    健全食品安全風險評估制度。一是建立獨立的食品安全風險評估機構。食品安全風險評估與食品安全風險管理在職能上分離,可以減少評估過程中行政主體與評估主體的利益沖突,確保評估主體在風險評估過程中作出科學的判斷。還應構建促進多元主體參與的風險交流機制,這就需要專家和公眾的參與。專家對食品安全風險的知識和信息進行專業化評估,可以防止行政主體在應對食品風險時濫用行政裁量權;公眾通過切身感受參與到風險評估過程中,一方面可以使專家在公眾的監督和參與作用下,避免受到某些利益群體或行政機關的左右,另一方面能夠正確認識潛在的食品風險,增進公眾對風險評估結果的可接受性,有利于行政決策的實施。二是完善食品安全教育制度。通過有效傳播食品安全信息,使食品安全的參與者有更加全面的認識。《食品安全法》將食品安全知識納入國民素質教育范圍,增加了普及食品安全的相關法律及常識、開展食品安全公益宣傳等內容。

    “利長遠”的法治保障

    以《食品安全法》為基礎,實施食品安全戰略,推進食品安全治理體系和治理能力現代化建設,更好發揮法治在食品安全戰略中“利長遠”的作用。對于國家而言,要把食品安全上升到事關國家長遠發展的戰略高度,確保食品安全是國家兌現對人民群眾負責任的莊嚴承諾,是“法治國家、法治社會、法治政府”的必然要求,是穩定社會、經濟、法治秩序的基本保障,是全面建成社會主義現代化強國的重要組成部分。不安全的食品猶如千里之堤的“蟻穴”,縱使眼前危險看不出來,卻能從長遠上毀壞堤壩。風物長宜放眼量,要防微杜漸,防患于未然。

    對于企業而言,要不惜代價保證食品安全和質量。創造響亮品牌,是企業拓展生存空間的長遠之計。做大做強企業,最終靠的是產品質量和信用。沒有食品安全,必然導致產品質量和信用低下,逐漸喪失信譽而被淘汰出局。對于消費者而言,要謹防病從口入。大部分不安全食品具有隱蔽性和潛伏性,其危害顯示出來需要一段時間的積累。要采取相應措施,從源頭消除不安全食品,這是事關消費者生命健康安全的長遠之計。

    (作者系國家社科基金項目“醫學生命科技的法律規制創新研究”負責人、中國地質大學(武漢)教授)

    (責編:孫爽、閆妍)


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