食品安全问题产生的原因

食品安全问题产生的原因 一、政府规制失灵导致食品安全问题 政府规制失灵造成食品安全问题的产生就是指政府在市场经济体系中的规制、职能出现空缺，无法有效的食品安全领域。目前我国市场经济体系的发育很不充分，现为主体发育不良、体系不健全、价格和竞争机制不完善等。政府如果退出，仅靠市场主体的自我调节是不能够正常调整食品安全领域的。同时，本来应该由政府规制来调节市场经济领域的，可是由于政府的定位不当导致规制不能及时发挥作用。如法律法规体系的建设滞后、食品安全标准的协调机制和食品安全信用体系不完善、监管机制缺乏协调性和连续性、食品安全的执行过程中缺乏规范化、执法处罚力度不够、社会监督和问题处理机制缺位以及有关引导食品工业发展特别是食品科技创新能力方面的产业政策欠缺等，食品安全领域的管理出现真空状态，食品安全质量普遍偏低，这些都说明食品的和政府规制失灵有着莫大的关系。 二、功利主义和实用主义价值观的影响 不同于一般的伦理学说，功利主义不考虑行为的动机与手段，仅考虑行为的结果对最大快乐值的影响。能增加最大快乐值的即是善;反之即为恶。在经济政策上，早期的功利主义者倾向自由贸易，反对政府干涉。后期的功利主义者由于对私人企业的社会效率失去信心，又希望政府出面干涉来干涉自由贸易的发展。在我国，功利主义表现为对社会财富增加的强烈渴望，对经introduced a number of leading creative talents, and then the "introduction of a high-end talent, bringing an innovative team, a mainstay of the economy," the derivative effect, improving the competitiveness of inner. (C) improvement of science "three" working method. This year, the State will supply side as part of economic structural reform a top priority, structural reforms will create regional industrial transfer and investment direction change. For this change, we have to adapt domestic economic trends in quality and efficiency upgrades, find the right investment trends of the County and docking points, improved ways to improve effectiveness. One is the investment promotion policy to further clarify. To develop "three a" preferential policies, the County policy investment, not to engage in vicious competition in the County. Incentives to attract foreign investment must be clear, no investment on town street, investment task tasks departments and staff, enterprise investment enterprises, three level, have clear criteria for award. To implement the "enclave economy", the street attract projects according to the industrial development of the town planning zone landed, after tax, all included in the attract target in town street, 50% into account the task of landing zone indicators. To make "three one" promo, ... ... Advantages and policy advocacy. To implemented joint trial joint batch system, a new industrial project landing must after sent modified, and Tsunenobu, and environmental, and safety, and land, and tax, and financial, sector joint analysis argument, on environmental policy, and acres are tax, and technology, and resources using, and market prospects, for analysis, on environmental, and capacity, and security, and social stable for risk assessment, not after joint trial joint batch of project cannot landing. To increase its support for the introduction of talent, entrepreneurship, innovation talent on a class, class b business, creative talent, such as different levels of talent, in areas 济发展的极度推进，这些虽然使得社会效益和经济效益得到了最大化的发展，但是也使得诚信观念在经济的快速发展中消失殆尽。 实用主义的特点在于，把实证主义功利化，强调生活、行动和效果，它把经验和实在归结为行动的效果，把知识归结为行动的工具，把真理归结为有用、效用、或行动的成功。 实用主义和“有用即真理”的观点本质上是一致的，都是主观唯心主义的。尽管实用主义对我国市场经济的发展有很多可借鉴的地方，但是也有其局限性。实用主义作为美国的土生哲学，自然包含了美国社会的文化气质。传播到中国，如果我们只是全盘地接受，而不对其进行改造式地利用，那么实用主义往往会在价值观念上反客为主，使得我国的经济发展出现桎梏。 三、食品安全法律体系的不完善 我国现已颁布的涉及食品安全的法律法规数量多达十几部，有《食品安全法》《食品卫生行政处罚法》《食品卫生监督程序》《食品安全管理条例》《产品质量法》《消费者权益保护法》《中华人民共和国刑法》等一系列的法律法规。虽然这些法律法规构成了我国食品安全领域的基本框架，但是由于它出台早，要求标准低，以及现实情况的飞速发展，有些条款已经不能适应新时期市场经济体系，对待严重的食品问题，已经不能有效的规范，合理的操作。例如，作为食品安全核心保障的《食品卫生法》是1995年正式出台的，它作为我国现阶段调整食品安全卫生的主introduced a number of leading creative talents, and then the "introduction of a high-end talent, bringing an innovative team, a mainstay of the economy," the derivative effect, improving the competitiveness of inner. (C) improvement of science "three" working method. This year, the State will supply side as part of economic structural reform a top priority, structural reforms will create regional industrial transfer and investment direction change. For this change, we have to adapt domestic economic trends in quality and efficiency upgrades, find the right investment trends of the County and docking points, improved ways to improve effectiveness. One is the investment promotion policy to further clarify. To develop "three a" preferential policies, the County policy investment, not to engage in vicious competition in the County. Incentives to attract foreign investment must be clear, no investment on town street, investment task tasks departments and staff, enterprise investment enterprises, three level, have clear criteria for award. To implement the "enclave economy", the street attract projects according to the industrial development of the town planning zone landed, after tax, all included in the attract target in town street, 50% into account the task of landing zone indicators. To make "three one" promo, ... ... Advantages and policy advocacy. To implemented joint trial joint batch system, a new industrial project landing must after sent modified, and Tsunenobu, and environmental, and safety, and land, and tax, and financial, sector joint analysis argument, on environmental policy, and acres are tax, and technology, and resources using, and market prospects, for analysis, on environmental, and capacity, and security, and social stable for risk assessment, not after joint trial joint batch of project cannot landing. To increase its support for the introduction of talent, entrepreneurship, innovation talent on a class, class b business, creative talent, such as different levels of talent, in areas 要法律之一，至今已有10多年的历史。同时，这些法律法规大多是以部门起草立法，带来很多弊端，例如食品卫生法是卫生部门起草立法，就没有涉及到兽药残留的问题。主要原因包括: 第一，《食品卫生法》等法律法规所调整的范围过于狭窄。《食品卫生法》第四条规定:"凡在中华人民共和国领域内从事食品生产经营的，都必须遵守本法。"从此条可以看出，《食品卫生法》的"食品"概念是狭义的，并没有包括种植、养殖、储存等环节中的食品以及与食品相关的食品添加剂、饲料及饲料添加剂的生产、经营或者使用。而食品安全问题本身涵盖了从农田到餐桌的全过程，法律应当反映出食品在这个过程中的整个生物链条，仅对食品生产经营阶段中发生的食品安全法律关系进行调整使得该法出现了较大的法律监管盲区，从而造成了政府部门对饲料中加入瘦肉精、农药大量残留、滥用抗生素、食品储存污染等诸多问题的监管滞后和监管不力。 第二，《食品卫生法》确定的执法主体与现实情况有所脱节。根据该法第三条的规定:"国务院卫生行政部门主管全国食品卫生监督管理工作。国务院有关部门在各自的职责范围内负责食品卫生管理工作。"而1998年机构改革之后，我国食品监管主要由国家食品药品监督管理局、公安部、农业部、商务部、卫生部、国家工商行政管理局、国家质量监督检验检疫总局、海关总署等多个部委共同按职能分段监管，已形成了食品安全多部门的监管体制。2004年9月1日颁布的《国务院关于进一步加强食品安introduced a number of leading creative talents, and then the "introduction of a high-end talent, bringing an innovative team, a mainstay of the economy," the derivative effect, improving the competitiveness of inner. (C) improvement of science "three" working method. This year, the State will supply side as part of economic structural reform a top priority, structural reforms will create regional industrial transfer and investment direction change. For this change, we have to adapt domestic economic trends in quality and efficiency upgrades, find the right investment trends of the County and docking points, improved ways to improve effectiveness. One is the investment promotion policy to further clarify. To develop "three a" preferential policies, the County policy investment, not to engage in vicious competition in the County. Incentives to attract foreign investment must be clear, no investment on town street, investment task tasks departments and staff, enterprise investment enterprises, three level, have clear criteria for award. To implement the "enclave economy", the street attract projects according to the industrial development of the town planning zone landed, after tax, all included in the attract target in town street, 50% into account the task of landing zone indicators. To make "three one" promo, ... ... Advantages and policy advocacy. To implemented joint trial joint batch system, a new industrial project landing must after sent modified, and Tsunenobu, and environmental, and safety, and land, and tax, and financial, sector joint analysis argument, on environmental policy, and acres are tax, and technology, and resources using, and market prospects, for analysis, on environmental, and capacity, and security, and social stable for risk assessment, not after joint trial joint batch of project cannot landing. To increase its support for the introduction of talent, entrepreneurship, innovation talent on a class, class b business, creative talent, such as different levels of talent, in areas 全工作的决定》再次对有关部委的职责分工加以调整和明确。《食品卫生法》关于执法主体职责的应当顺应现实的改变做出相应的调整。 第三，食品安全法律体系的内容比较单薄，对经济社会和科技发展所导致的食品安全的新情况、新问题大多尚未涉及。和经济发达国家的食品安全法规相比，我国缺少一系列保障食品安全的重要制度。例如食品安全应急处理机制、食品安全风险评价制度、食品安全信用制度以及食品安全信息发布制度等。同时，我国食品安全法律体系对"食品安全"等最重要最基本的概念尚未有明确的法律定义。 第四，食品安全法律责任的规定不严、衔接不顺、内容不全。以食品安全法律体系的核心《食品卫生法》为例，对违反该法规定，食品生产经营过程不符合卫生要求的，责令改正，给予警告，可以处以五千元以下的罚款;拒不改正或者有其他严重情节的，吊销卫生许可证。食品卫生是食品安全最基本的要求，对违反卫生规定的当予重罚。然而根据该法，在一般违法情况下，除了责令改正和警告之外，五千元以下的罚款落在执法机关的自由裁量范围之内，且不说罚款的上限太低，如此"可以"也为追究违法者的行政责任创造了迂回的空间，极有可能连区区五千元以下的罚款也不了了之。类似的规定总和起来，执法不力也就难免了。 再如，《食品卫生法》第三十九条规定:违反本法规定，生产经营不符合卫生标准的食品，造成严重食物中毒事故或者其他严重introduced a number of leading creative talents, and then the "introduction of a high-end talent, bringing an innovative team, a mainstay of the economy," the derivative effect, improving the competitiveness of inner. (C) improvement of science "three" working method. This year, the State will supply side as part of economic structural reform a top priority, structural reforms will create regional industrial transfer and investment direction change. For this change, we have to adapt domestic economic trends in quality and efficiency upgrades, find the right investment trends of the County and docking points, improved ways to improve effectiveness. One is the investment promotion policy to further clarify. To develop "three a" preferential policies, the County policy investment, not to engage in vicious competition in the County. Incentives to attract foreign investment must be clear, no investment on town street, investment task tasks departments and staff, enterprise investment enterprises, three level, have clear criteria for award. To implement the "enclave economy", the street attract projects according to the industrial development of the town planning zone landed, after tax, all included in the attract target in town street, 50% into account the task of landing zone indicators. To make "three one" promo, ... ... Advantages and policy advocacy. To implemented joint trial joint batch system, a new industrial project landing must after sent modified, and Tsunenobu, and environmental, and safety, and land, and tax, and financial, sector joint analysis argument, on environmental policy, and acres are tax, and technology, and resources using, and market prospects, for analysis, on environmental, and capacity, and security, and social stable for risk assessment, not after joint trial joint batch of project cannot landing. To increase its support for the introduction of talent, entrepreneurship, innovation talent on a class, class b business, creative talent, such as different levels of talent, in areas 食源性疾患，对人体健康造成严重危害的，依法追究刑事责任。而根据《刑法》第一百四十三条的规定，生产、销售不符合卫生标准的食品，只要足以造成严重食物中毒事故或者其他严重食源性疾患的，即构成犯罪，依法应予追究刑事责任。两者相比较可以看出，在同一罪名上，《食品卫生法》要求违法行为具有人身伤害后果才构成犯罪，而《刑法》则强调当违法行为具有危害人身健康的危险性时即构成犯罪。两者尺度的不统一，往往会造成行政执法部门在对待"足以造成严重食物中毒事故或者其他严重食源性疾患的"上述违法行为时，仅仅因为危害结果尚未发生，就依据《食品卫生法》做出不移交司法部门追究当事人刑事责任的决定，用行政处罚代替刑事追究。法律衔接的不统一给了违法食品业主以喘息的可能，削减了法律的惩处力度，也为司法机关再度追究当事人的刑事责任造成了时间上的拖延。其主要原因是《食品卫生法》修订在前，《刑法》修订在后，这段时期内无论是食品安全问题还是国家对食品安全的关注程度均有加重之势，《刑法》的修订是顺应了当时食品安全的要求。可见《食品卫生法》的滞后性已经显现。 第五，现行食品安全法律体系中尚欠缺对食品安全监管机关及其工作人员的监管职责的落实和失职责任的追究机制。 四、食品安全监管体系和检测体系的不完善 1.食品安全监管体系的不完善主要表现在:第一，实行多头管理，管理职能不明确。由于部分执法单位的职能在法律法规上introduced a number of leading creative talents, and then the "introduction of a high-end talent, bringing an innovative team, a mainstay of the economy," the derivative effect, improving the competitiveness of inner. (C) improvement of science "three" working method. This year, the State will supply side as part of economic structural reform a top priority, structural reforms will create regional industrial transfer and investment direction change. For this change, we have to adapt domestic economic trends in quality and efficiency upgrades, find the right investment trends of the County and docking points, improved ways to improve effectiveness. One is the investment promotion policy to further clarify. To develop "three a" preferential policies, the County policy investment, not to engage in vicious competition in the County. Incentives to attract foreign investment must be clear, no investment on town street, investment task tasks departments and staff, enterprise investment enterprises, three level, have clear criteria for award. To implement the "enclave economy", the street attract projects according to the industrial development of the town planning zone landed, after tax, all included in the attract target in town street, 50% into account the task of landing zone indicators. To make "three one" promo, ... ... Advantages and policy advocacy. To implemented joint trial joint batch system, a new industrial project landing must after sent modified, and Tsunenobu, and environmental, and safety, and land, and tax, and financial, sector joint analysis argument, on environmental policy, and acres are tax, and technology, and resources using, and market prospects, for analysis, on environmental, and capacity, and security, and social stable for risk assessment, not after joint trial joint batch of project cannot landing. To increase its support for the introduction of talent, entrepreneurship, innovation talent on a class, class b business, creative talent, such as different levels of talent, in areas 还没有理顺，食品监管越位、错位和缺位的现象时有发生;监管涉及多个监管部门而且职能交叉，各职能部门之间缺乏有效的信息交流，有的甚至相互掣肘。第二，执法机构建设还不适应严峻的管理形势。主要表现为队伍建设进展不快，队伍年龄老化、知识结构老化等矛盾比较突出。整个队伍建设已经不能适应形势的需要。 2.食品安全检测体系的不完善主要体现在:第一，检测机构不健全。从2001年开始，北京、天津、上海、深圳四个试点城市的蔬菜农药残留和生猪“瘦肉精”污染定点监测工作开始实施，进而逐步扩展到全国37个城市全年5次的蔬菜农残、16个城市畜产品污染和5个城市水产品中药物污染定点监测。但从总体上来看，各个地方对食品安全检验检测体系还不完善。第二，对已有的检测机构建设重视不够。关键是检测技术检验设备和资金不足，致使食品检测事业一直处于步履艰难的状态。当前，我国在食品安全监督管理的资源方面存在投入不足问题。一方面表现为监督管理人力不足和素质不高，另一方面是用于监督管理的设备与检验的设备严重不足与落后。 五、生产经营者与消费者之间的信息的不对称 信息不对称是指日常经济活动中，由于某些参与人拥有另一些参与人不拥有的信息，由此造成的不对称信息的交易活动。在食品市场上，部分食品经营者法律意识淡薄、唯利是图、不注重食品质量。在确信不会对消费者立即造成致命伤害时，根本无视消费者的健康，致使消费者在对有可能伤害到自身健康并不知情introduced a number of leading creative talents, and then the "introduction of a high-end talent, bringing an innovative team, a mainstay of the economy," the derivative effect, improving the competitiveness of inner. (C) improvement of science "three" working method. This year, the State will supply side as part of economic structural reform a top priority, structural reforms will create regional industrial transfer and investment direction change. For this change, we have to adapt domestic economic trends in quality and efficiency upgrades, find the right investment trends of the County and docking points, improved ways to improve effectiveness. One is the investment promotion policy to further clarify. To develop "three a" preferential policies, the County policy investment, not to engage in vicious competition in the County. Incentives to attract foreign investment must be clear, no investment on town street, investment task tasks departments and staff, enterprise investment enterprises, three level, have clear criteria for award. To implement the "enclave economy", the street attract projects according to the industrial development of the town planning zone landed, after tax, all included in the attract target in town street, 50% into account the task of landing zone indicators. To make "three one" promo, ... ... Advantages and policy advocacy. To implemented joint trial joint batch system, a new industrial project landing must after sent modified, and Tsunenobu, and environmental, and safety, and land, and tax, and financial, sector joint analysis argument, on environmental policy, and acres are tax, and technology, and resources using, and market prospects, for analysis, on environmental, and capacity, and security, and social stable for risk assessment, not after joint trial joint batch of project cannot landing. To increase its support for the introduction of talent, entrepreneurship, innovation talent on a class, class b business, creative talent, such as different levels of talent, in areas 的情况下进行购买行为。还有一部分生产单位在申报相关食品安全证书或安全标准体系的认证时，一般能较好地执行相关的食品安全标准，但是在获得证书后，往往会给安全标准“打折”，生产低成本、低质量的产品。这样，消费者难以察觉食品的质量而可能造成伤害。 此外，信息不对称造成严重的市场失灵，质量低劣、存在安全隐患、价格便宜的食品将质量好但成本高而导致价格高的食品挤出市场，市场上只剩下去安全保障的食品，消费者购买食品的安全程度降低。 六、地方保护主义的过度发展 在食品安全问题中，地方保护主对食品药品的流通产生了严重的影响。第一，地方保护阻碍了全国统一、公平、规范、有序市场的建立和社会主义市场经济体制的形成。这种不公平的经济体制必然会加剧无序竞争，破坏产业结构和宏观经济总量平衡，弱化地方企业的竞争力和发展能力，破坏地方的形象和投资环境，削弱地方可持续发展的能力。第二，地方保护危害了地方经济的发展，损害了地方政府的信誉。同时地方保护主义还会导致市场信号失真、资源浪费和资源配置效率低下，破坏市场秩序以及影响市场经济健康发展。第三，地方保护肢解市场，阻碍统一大市场的形成。没有统一的大市场，地方割据就必然保护落后，影响公平竞争;导致地区产业、产品结构同化，造成浪费和损失。 七、国家处罚力度的薄弱 introduced a number of leading creative talents, and then the "introduction of a high-end talent, bringing an innovative team, a mainstay of the economy," the derivative effect, improving the competitiveness of inner. (C) improvement of science "three" working method. This year, the State will supply side as part of economic structural reform a top priority, structural reforms will create regional industrial transfer and investment direction change. For this change, we have to adapt domestic economic trends in quality and efficiency upgrades, find the right investment trends of the County and docking points, improved ways to improve effectiveness. One is the investment promotion policy to further clarify. To develop "three a" preferential policies, the County policy investment, not to engage in vicious competition in the County. Incentives to attract foreign investment must be clear, no investment on town street, investment task tasks departments and staff, enterprise investment enterprises, three level, have clear criteria for award. To implement the "enclave economy", the street attract projects according to the industrial development of the town planning zone landed, after tax, all included in the attract target in town street, 50% into account the task of landing zone indicators. To make "three one" promo, ... ... Advantages and policy advocacy. To implemented joint trial joint batch system, a new industrial project landing must after sent modified, and Tsunenobu, and environmental, and safety, and land, and tax, and financial, sector joint analysis argument, on environmental policy, and acres are tax, and technology, and resources using, and market prospects, for analysis, on environmental, and capacity, and security, and social stable for risk assessment, not after joint trial joint batch of project cannot landing. To increase its support for the introduction of talent, entrepreneurship, innovation talent on a class, class b business, creative talent, such as different levels of talent, in areas 目前，我国的食品法律法规惩罚力度不够，缺乏威慑力。我国对食品安全事故责任单位和责任人的惩处相对过轻，对违法行为大多予以查封、捣毁窝点、停业整顿和罚款等，处理威慑力不够。例如:食品卫生是食品安全最基本的要求，对违反卫生规定的应当予以重罚。然而《食品卫生法》却规定，食品生产经营过程不符合卫生要求的，责令改正，给予警告，可以处以五千元以下的罚款;拒不改正或者有其他严重情节的，才吊销卫生许可证。不说它对违法行为罚款的上限太低，就是在一般违法情况下，除了责令改正和警告之外，是否处以五千元以下的罚款还是在执法机关的自由裁量范围之内，极有可能连区区五千元以下的罚款也不了了之。食品的处罚工作没有建立有效的处罚机制，往往是出现问题以后的补救措施。执法不严、监管不力仍然存在于食品安全领域的多个环节。 食品安全问题发展到今天，已经超越出传统的食品卫生或食品污染的范围，已经关系到人类赖以生存和健康发展的食品管理和保护问题。不仅是经济问题也是政治问题，不仅是管理问题也是技术问题。食品安全问题需要全社会的参与，食品安全问题已经成为公众关注的社会问题。 introduced a number of leading creative talents, and then the "introduction of a high-end talent, bringing an innovative team, a mainstay of the economy," the derivative effect, improving the competitiveness of inner. (C) improvement of science "three" working method. This year, the State will supply side as part of economic structural reform a top priority, structural reforms will create regional industrial transfer and investment direction change. For this change, we have to adapt domestic economic trends in quality and efficiency upgrades, find the right investment trends of the County and docking points, improved ways to improve effectiveness. One is the investment promotion policy to further clarify. To develop "three a" preferential policies, the County policy investment, not to engage in vicious competition in the County. Incentives to attract foreign investment must be clear, no investment on town street, investment task tasks departments and staff, enterprise investment enterprises, three level, have clear criteria for award. To implement the "enclave economy", the street attract projects according to the industrial development of the town planning zone landed, after tax, all included in the attract target in town street, 50% into account the task of landing zone indicators. To make "three one" promo, ... ... Advantages and policy advocacy. To implemented joint trial joint batch system, a new industrial project landing must after sent modified, and Tsunenobu, and environmental, and safety, and land, and tax, and financial, sector joint analysis argument, on environmental policy, and acres are tax, and technology, and resources using, and market prospects, for analysis, on environmental, and capacity, and security, and social stable for risk assessment, not after joint trial joint batch of project cannot landing. To increase its support for the introduction of talent, entrepreneurship, innovation talent on a class, class b business, creative talent, such as different levels of talent, in areas