本文選題：食品安全 + 政府監(jiān)管��； 參考：《西北農(nóng)林科技大學(xué)》2009年博士論文

【摘要】：2008年發(fā)生的“三聚氰胺”中毒事件使我們的食品安全監(jiān)管體系的有效性再次受到審視。食品安全已經(jīng)被我國(guó)公眾列為社會(huì)生活中最差的環(huán)節(jié)。食品安全是關(guān)系國(guó)計(jì)民生的生命問題,也是一個(gè)國(guó)家、一個(gè)民族人民生活質(zhì)量的重要標(biāo)志。伴隨著科學(xué)技術(shù)的迅速發(fā)展,國(guó)際化全球化的快速推進(jìn),食品安全問題對(duì)人類社會(huì)的影響越來越大,每年都有成千上萬的人因食用受污染的食品而患上傳染性或非傳染性的食源性疾病。這些疾病嚴(yán)重地影響人們的身體健康,降低了社會(huì)福利和生產(chǎn)效率。 由于食品具有信任品的特性,在食品安全供給上存在著外部性、信息不對(duì)稱、公共產(chǎn)品問題,市場(chǎng)失靈就成為一種常態(tài)。解決食品安全“市場(chǎng)失靈”的辦法就是用政府食品監(jiān)管這只“有形的手”去彌補(bǔ)市場(chǎng)機(jī)制的缺陷。然而這些年的監(jiān)管實(shí)踐證明,政府監(jiān)管的效果并不令人滿意,“政府失靈”問題仍然困擾著社會(huì)各界。從理論上看,政府失靈的根本原因就在于我們對(duì)食品安全監(jiān)管的機(jī)理還缺乏深刻認(rèn)識(shí),對(duì)食品安全概念的內(nèi)涵和外延沒有統(tǒng)一認(rèn)識(shí),食品安全的決定原理還不清楚,缺乏建立廉價(jià)高效的監(jiān)管體制機(jī)制的途徑和手段,特別是對(duì)如何建立適合我國(guó)國(guó)情的監(jiān)管體系研究較少。諸如此類問題懸而未決,并已成為研究食品安全的重要課題。因而,研究我國(guó)的食品安全監(jiān)管體系具有重要的理論和現(xiàn)實(shí)意義。 論文以公共管理理論和經(jīng)濟(jì)學(xué)理論等相關(guān)理論為指導(dǎo),在我國(guó)社會(huì)主義市場(chǎng)經(jīng)濟(jì)體制建立和完善的實(shí)踐背景下,從我國(guó)食品安全監(jiān)管的現(xiàn)狀出發(fā),在借鑒發(fā)達(dá)國(guó)家和地區(qū)經(jīng)驗(yàn)和做法的基礎(chǔ)上,運(yùn)用實(shí)證分析和理論分析相結(jié)合、定性分析和定量分析相結(jié)合等方法,參照系統(tǒng)工程原理,按照監(jiān)管體系的構(gòu)成要素(監(jiān)管主體、監(jiān)管客體、監(jiān)管手段、監(jiān)管效能改進(jìn))的邏輯結(jié)構(gòu),系統(tǒng)地分析食品安全監(jiān)管的機(jī)理、模式與路徑。按照邏輯關(guān)系,將論文分為10章。 第1章導(dǎo)論。本章介紹了論文的研究背景、目的及意義。在食品安全供給問題上存在著嚴(yán)重的市場(chǎng)失靈。為了糾正市場(chǎng)機(jī)制的缺陷,需要政府進(jìn)行監(jiān)管。然而實(shí)踐證明,政府監(jiān)管也存在“失靈”問題。本論文按照系統(tǒng)工程思路研究食品安全監(jiān)管存在的“政府失靈”問題,目的是找出問題癥結(jié),提高監(jiān)管效能。 第2章食品安全監(jiān)管體系研究的理論基礎(chǔ)。食品安全的概念是研究食品安全監(jiān)管問題的邏輯起點(diǎn)。論文對(duì)食品安全的內(nèi)涵和外延進(jìn)行了重新界定,厘清了食品安全與食品質(zhì)量、食品衛(wèi)生的關(guān)系,認(rèn)為食品安全是食品質(zhì)量的組成因子,食品安全是一個(gè)相對(duì)的動(dòng)態(tài)概念,食品安全水平與社會(huì)經(jīng)濟(jì)發(fā)展水平相適應(yīng)。分析食品安全監(jiān)管要以公共管理理論、經(jīng)濟(jì)學(xué)理論、政府監(jiān)管理論為基礎(chǔ)。食品安全監(jiān)管的社會(huì)理由是解決食品供給中存在的信息不對(duì)稱、不完全和負(fù)的外部性問題。食品安全監(jiān)管的本質(zhì)屬于社會(huì)性監(jiān)管。 第3章食品安全監(jiān)管體系的國(guó)際比較。本章從監(jiān)管體制和監(jiān)管制度(政策法律和技術(shù)標(biāo)準(zhǔn)體系)兩個(gè)維度對(duì)美國(guó)、歐盟、日本、丹麥等發(fā)達(dá)國(guó)家和地區(qū)的食品安全監(jiān)管經(jīng)驗(yàn)進(jìn)行分析。通過比較研究,提出要按照食品生產(chǎn)、加工、流通、消費(fèi)的自然過程和監(jiān)管部門履行職責(zé)的專業(yè)能力整合我國(guó)監(jiān)管機(jī)構(gòu)職責(zé)分工。同時(shí),我們應(yīng)當(dāng)借鑒并吸收發(fā)達(dá)國(guó)家和地區(qū)的先進(jìn)經(jīng)驗(yàn),盡快建立與國(guó)際接軌、高效、科學(xué)的食品安全法律法規(guī)、技術(shù)法規(guī)和技術(shù)標(biāo)準(zhǔn)體系,以適應(yīng)食品安全問題監(jiān)管國(guó)際化的需要,用嚴(yán)密的監(jiān)管體系筑起食品安全的“堤壩”。 第4章食品安全監(jiān)管體系構(gòu)成及其決策模式分析。食品安全監(jiān)管體系由三類外部要素和四類內(nèi)部要素構(gòu)成。我們假定外部因素是給定的,內(nèi)部因素是監(jiān)管者可以影響的因素。根據(jù)利益相關(guān)者理論,食品安全水平是由生產(chǎn)者、消費(fèi)者、政府監(jiān)管機(jī)構(gòu)三個(gè)基本因素決定的。本章在生命價(jià)值理論和消費(fèi)者意愿支付(wilingness to pay)實(shí)證研究的基礎(chǔ)上,運(yùn)用成本—收益分析和博弈方法,分析安全食品的生產(chǎn)者和需求者的決策模式,以及政府監(jiān)管的決策模型。消費(fèi)者追求效用最大化,生產(chǎn)者追求利潤(rùn)最大化,政府追求社會(huì)福利最大化,三種力量互相制約、互相依賴,共同決定了一個(gè)具體社會(huì)的食品安全水平。 第5章我國(guó)食品安全監(jiān)管客體分析。本章分析了我國(guó)食品行業(yè)發(fā)展和食品安全現(xiàn)狀,用“三聚氰胺”事件案例剖析了我國(guó)食品安全存在著企業(yè)缺乏自律、監(jiān)管制度漏洞、技術(shù)法規(guī)和標(biāo)準(zhǔn)不完善、產(chǎn)品責(zé)任模糊、監(jiān)管體制弊端、法律執(zhí)行不力等六個(gè)方面的困境。 食品行業(yè)的總體特征與監(jiān)管模式存在著密切的關(guān)系。我國(guó)食品行業(yè)的總體集中度不高,只有啤酒、飲料等少數(shù)產(chǎn)業(yè)集中度較高。產(chǎn)業(yè)集中度高的行業(yè),可以實(shí)行高度集中的管理模式,全國(guó)制定統(tǒng)一的監(jiān)管政策,監(jiān)管部門對(duì)這些行業(yè)應(yīng)主要實(shí)行以HACCP認(rèn)證為主的監(jiān)管政策;對(duì)于產(chǎn)業(yè)集中度低的行業(yè),應(yīng)該以分散監(jiān)管為主,各地區(qū)可以根據(jù)自己的實(shí)際制定市場(chǎng)準(zhǔn)入監(jiān)管政策,把食品安全風(fēng)險(xiǎn)控制在可以容忍的范圍內(nèi)。 第6章我國(guó)食品安全監(jiān)管主體分析。食品安全監(jiān)管的效果取決于監(jiān)管機(jī)構(gòu)之間的科學(xué)分工,還依賴于工作努力程度(Vigorous)和和能力強(qiáng)度(Capacity),即:監(jiān)管績(jī)效=監(jiān)管態(tài)度×監(jiān)管能力=監(jiān)管態(tài)度×(監(jiān)管者專業(yè)素質(zhì)+技術(shù)裝備+其他設(shè)施),用函數(shù)式表示為:P=f(V,C),式中的P代表績(jī)效水平,V代表積極性、努力程度、責(zé)任心,C代表能力。 我國(guó)食品安全監(jiān)管機(jī)構(gòu)由9個(gè)相關(guān)部門組成,其中最主要的有5個(gè)部門。這些部門的職能配置在橫向上存在著交叉和重疊,在縱向上存在著垂直、半垂直和分級(jí)管理混合的現(xiàn)象,基層存在監(jiān)管真空。 我國(guó)目前食品安全監(jiān)管體制導(dǎo)致監(jiān)管資源配置效率低下。原因首先在于我國(guó)的監(jiān)管機(jī)構(gòu)職能存在橫向過寬、縱向?qū)哟芜^多的問題,人為地加大了監(jiān)管成本,降低了監(jiān)管效率;其次是一些監(jiān)管機(jī)構(gòu)特別是對(duì)食品安全“負(fù)總責(zé)”的地方政府工作懈怠;其三是因?yàn)楸O(jiān)管機(jī)構(gòu)能力建設(shè)滯后。因此,要提高監(jiān)管成效,應(yīng)在國(guó)家一級(jí)強(qiáng)化監(jiān)管職能,整合各部門的資源�？s窄橫向監(jiān)管幅度,調(diào)整部門職能分工。按照食品安全問題發(fā)生機(jī)制和從“農(nóng)田到餐桌”的安全控制理念,將以“過程監(jiān)管為主,品種監(jiān)管為輔”的監(jiān)管策略,調(diào)整為“以品種監(jiān)管為主,過程監(jiān)管為輔”的監(jiān)管策略。同時(shí),要從理順體制、提高人員素質(zhì)、增加經(jīng)費(fèi)保障、提高技術(shù)裝備水平四個(gè)方面加強(qiáng)監(jiān)管機(jī)構(gòu)的能力建設(shè)。 第7章食品安全監(jiān)管的手段與工具。食品安全監(jiān)管的政策工具主要有法律手段、技術(shù)法規(guī)和食品標(biāo)準(zhǔn)手段、行政手段三類。在比較分析三者關(guān)系的基礎(chǔ)上,提出了建立我國(guó)食品安全技術(shù)法規(guī)體系的構(gòu)想,進(jìn)一步明確三者之間的職能定位,建立層次清晰、相互配合、運(yùn)轉(zhuǎn)協(xié)調(diào)的食品安全監(jiān)管政策體系和運(yùn)行機(jī)制。在實(shí)際監(jiān)管過程中,食品安全監(jiān)管能否取得預(yù)期效果取決于各種手段的運(yùn)用。按照系統(tǒng)工程的原則,只有遵循整體化原則、優(yōu)化與可行原則、決策科學(xué)化原則、組合效應(yīng)原則進(jìn)行比較分析,才能制定符合中國(guó)國(guó)情,創(chuàng)造科學(xué)、適用、有中國(guó)特色的政策模式。本章著重分析了食品安全監(jiān)管中的難點(diǎn)問題—小企業(yè)、小作坊監(jiān)管的政策模式,運(yùn)用風(fēng)險(xiǎn)決策矩陣進(jìn)行分析,認(rèn)為對(duì)食品小企業(yè)小作坊應(yīng)進(jìn)行規(guī)范整頓,準(zhǔn)許其限時(shí)間限地域生產(chǎn),最符合社會(huì)整體利益最大化的要求,也是最符合便利性、安全性目標(biāo)要求的選擇。提出了明確監(jiān)管責(zé)任、創(chuàng)新監(jiān)管制度、分級(jí)分類監(jiān)管的政策思路。 第8章食品安全監(jiān)管的運(yùn)行機(jī)制。本章運(yùn)用激勵(lì)—控制理論分析了食品安全監(jiān)管機(jī)構(gòu)運(yùn)用監(jiān)管政策影響監(jiān)管對(duì)象的實(shí)際過程。提出運(yùn)用執(zhí)法力度系數(shù)來衡量我國(guó)行政執(zhí)法力度,我國(guó)質(zhì)檢系統(tǒng)2005年、2006年、2007年的執(zhí)法力度系數(shù)僅為0.33、0.37和0.58,遠(yuǎn)遠(yuǎn)低于1.0的基本要求。由于食品安全監(jiān)管的法律法規(guī)不健全,政策設(shè)計(jì)不完善,常常導(dǎo)致“大棒不痛、胡蘿卜不甜”的局面。 本章還分析了制約我國(guó)食品安全監(jiān)管效能的危機(jī)管理理論模式和實(shí)踐模式。我國(guó)已經(jīng)進(jìn)入食品安全危機(jī)高發(fā)期,食品安全危機(jī)具有突發(fā)性和緊急性、高度不確定性、信息的有限性、邊界的模糊性、發(fā)展的非線性等特點(diǎn),分析食品安全危機(jī)管理的理論模式和我國(guó)的實(shí)踐模式,提出從4個(gè)途徑加強(qiáng)我國(guó)的食品安全危機(jī)管理工作。一是加強(qiáng)食品安全危機(jī)理論研究與宣傳,用科學(xué)的理論指導(dǎo)食品安全危機(jī)管理;二是加快食品安全危機(jī)管理法制化進(jìn)程;三是構(gòu)建完善的食品安全危機(jī)管理組織體系;四是優(yōu)化危機(jī)管理流程,實(shí)現(xiàn)危機(jī)管理的標(biāo)準(zhǔn)化、制度化。 第9章提高監(jiān)管體系運(yùn)行效能的方法探討—績(jī)效評(píng)估。政府監(jiān)管機(jī)構(gòu)領(lǐng)導(dǎo)不斷被問責(zé)的事實(shí)啟示我們,食品安全監(jiān)管的有效性較低。為了督促地方政府有關(guān)部門認(rèn)真履行職責(zé),使其避免出現(xiàn)工作懈怠、玩忽職守、瀆職等問題,論文研究篩選了一套監(jiān)管績(jī)效評(píng)估指標(biāo)體系。這些指標(biāo)體系應(yīng)用政府績(jī)效評(píng)估的一般理論和各地實(shí)踐經(jīng)驗(yàn),結(jié)合我國(guó)食品安全監(jiān)管實(shí)際,并按照德爾菲法用SPSS分析軟件對(duì)指標(biāo)體系進(jìn)行了篩選,形成了包含三個(gè)維度、六個(gè)業(yè)績(jī)領(lǐng)域、20個(gè)指標(biāo)的地方食品安全監(jiān)管績(jī)效評(píng)估指標(biāo)體系,從而為加強(qiáng)對(duì)監(jiān)管部門的監(jiān)督提供了科學(xué)有效的工具。 第10章加強(qiáng)我國(guó)食品安全監(jiān)管體系建設(shè)的政策建議。有效的食品安全監(jiān)管是一個(gè)系統(tǒng)工程,提高食品安全監(jiān)管的有效性,應(yīng)當(dāng)從以下六方面采取措施。一是進(jìn)一步完善我國(guó)食品安全監(jiān)管的法律法規(guī)體系,《食品安全法》與原來已經(jīng)存在并繼續(xù)發(fā)揮作用的《產(chǎn)品質(zhì)量法》、《食品衛(wèi)生法》、《消費(fèi)者權(quán)益保護(hù)法》、《生豬屠宰管理?xiàng)l例》等相關(guān)法律之間的協(xié)調(diào)性還比較差,需要將各個(gè)法律法規(guī)統(tǒng)一起來。此外還需要制定產(chǎn)品責(zé)任法,解決執(zhí)法過程中對(duì)執(zhí)法者的監(jiān)督問題。二是建立我國(guó)的食品安全技術(shù)法規(guī)體系。改革食品安全標(biāo)準(zhǔn)體系,將其中涉及安全的內(nèi)容分離出來,建立食品安全法律、食品安全技術(shù)法規(guī)、食品安全技術(shù)標(biāo)準(zhǔn)三個(gè)層次定位明確、功能完備的制度體系;三是將政府部門獨(dú)自監(jiān)管轉(zhuǎn)變?yōu)橐哉块T為主,社會(huì)相關(guān)力量共同參與的協(xié)作監(jiān)管機(jī)制。短期目標(biāo)是先對(duì)現(xiàn)在的分工進(jìn)行調(diào)整提高中央權(quán)威,減少管理層次,縮窄管理幅度,完善監(jiān)管網(wǎng)絡(luò);將8-9個(gè)部門承擔(dān)的監(jiān)管職責(zé)集中到農(nóng)業(yè)、衛(wèi)生(食品)、質(zhì)檢三個(gè)部門;長(zhǎng)期目標(biāo)是將消費(fèi)者聯(lián)盟(協(xié)會(huì))、社會(huì)中介組織、輿論媒體、生產(chǎn)者納入監(jiān)管主體范圍,實(shí)現(xiàn)監(jiān)管對(duì)象的全覆蓋。四是嚴(yán)格食品安全法律和法規(guī)的實(shí)施。將食品安全法律和法規(guī)的實(shí)施,納入人大執(zhí)法監(jiān)督范圍,加大民事維權(quán)執(zhí)法力度,消除彈性(選擇性)執(zhí)法現(xiàn)象;五是進(jìn)一步完善食品小企業(yè)監(jiān)管政策。從我國(guó)國(guó)情出發(fā),對(duì)小企業(yè)、小作坊實(shí)行差異化監(jiān)管,由各省(自治區(qū)、直轄市)根據(jù)當(dāng)?shù)厍闆r,制定靈活有效的監(jiān)管政策;六是加強(qiáng)食品安全監(jiān)管績(jī)效評(píng)估,建立督促監(jiān)管機(jī)構(gòu)認(rèn)真履行職責(zé)的監(jiān)督機(jī)制。食品安全監(jiān)管過程要按照計(jì)劃、執(zhí)行、檢查、改進(jìn)的循環(huán)模式實(shí)現(xiàn)閉環(huán)管理,四個(gè)環(huán)節(jié)缺一不可。食品安全政策的制定要堅(jiān)持透明、公開的原則,吸收消費(fèi)者、生產(chǎn)者等利益相關(guān)方廣泛參與;運(yùn)用科學(xué)、規(guī)范的食品安全監(jiān)管績(jī)效評(píng)估體系,合理配置監(jiān)管資源,提高監(jiān)管能力。 結(jié)論和展望。食品安全監(jiān)管面臨著嚴(yán)重的政府失靈現(xiàn)象,亟需采取有力措施提高監(jiān)管績(jī)效水平;食品安全水平是由食品生產(chǎn)者、食品消費(fèi)者、政府三種因素或三方力量共同決定的;食品安全監(jiān)管是一個(gè)系統(tǒng)工程,這一系統(tǒng)中的任何一個(gè)要素缺失或運(yùn)轉(zhuǎn)失靈都會(huì)降低整個(gè)系統(tǒng)的功效;重構(gòu)與創(chuàng)新我國(guó)食品安全監(jiān)管體系應(yīng)該采取6條政策;結(jié)合國(guó)情建立政府、企業(yè)、消費(fèi)者和其他組織協(xié)作監(jiān)管的機(jī)制是提高監(jiān)管效能的發(fā)展方向。
[Abstract]:The "melamine" poisoning incident in 2008 caused the effectiveness of our food safety supervision system to be examined again. Food safety has been listed as the worst part of our social life. Food safety is the life problem related to the national economy and the people's livelihood, and is also an important symbol of the quality of life of a nation and a national people. With the rapid development of science and technology, the rapid development of globalization and the rapid development of globalization, food safety has a growing influence on human society. Thousands of people suffer from contaminated food and non infectious food borne diseases every year. These diseases seriously affect the health of people and reduce the society. Welfare and production efficiency.
As food has the characteristics of trust products, there are externalities, information asymmetry and public product problems in the food safety supply. Market failure is a normal condition. The way to solve the "market failure" of food safety is to use government food supervision as a "tangible hand" to make up for the defects of the market mechanism. The management practice has proved that the effect of government supervision is not satisfactory, and the problem of "government failure" still plagued the community. In theory, the fundamental reason for the failure of the government lies in our lack of profound understanding of the mechanism of food safety supervision, the lack of unified understanding of the internal and extension of the concept of food safety and the decision of food safety. The principle is not clear, there is a lack of ways and means to establish a cheap and efficient regulatory system, especially on how to establish a regulatory system that is suitable for the national conditions of our country. Such issues are still unresolved, and have become an important subject for the study of food safety. Therefore, it is important to study the food safety supervision system in China. And the real meaning.
Guided by the theory of public management and the theory of economics and so on, under the background of the establishment and perfection of the socialist market economy system in China, it is based on the present situation of food safety supervision in our country. On the basis of the experience and practice of developed countries and regions, the empirical analysis and theoretical analysis are combined, and the qualitative analysis is made. According to the principle of system engineering, according to the principles of system engineering, according to the logical structure of the constituent elements of the regulatory system (supervision subject, supervision object, supervision means and improvement of supervision effectiveness), the mechanism, mode and path of food safety supervision are systematically analyzed. According to logical relationship, the paper is divided into 10 chapters.
First chapter introduction. This chapter introduces the research background, purpose and significance of the paper. There is a serious market failure in the supply of food safety. In order to correct the defects of the market mechanism, the government needs to be supervised. However, the practice has proved that there is a "failure" problem in the government supervision. This paper studies the food safety according to the system engineering idea. The purpose of monitoring the existence of "government failure" is to find out the crux of the problem and improve the effectiveness of supervision.
The second chapter is the theoretical basis of the research on the food safety supervision system. The concept of food safety is the logical starting point for the study of food safety supervision. The paper redefines the connotation and extension of food safety, clarifies the relationship between food safety and food quality, food hygiene, and believes that food safety is a component factor of food quality, and food safety is a component of food quality. Safety is a relative dynamic concept, and the level of food safety is adapted to the level of social and economic development. The analysis of food safety supervision should be based on public management theory, economic theory and government supervision theory. The social reasons for food safety supervision are to solve the information asymmetry, incomplete and negative externality in food supply. The essence of food safety supervision is social supervision.
The third chapter is the international comparison of food safety supervision system. This chapter analyses the experience of food safety supervision in developed countries and regions such as the United States, EU, Japan and Denmark from the two dimensions of regulatory system and regulatory system (policy, law and technical standard system). At the same time, we should draw on and absorb the advanced experience of developed countries and regions, and establish the laws and regulations on food safety with international standards, efficient and scientific, technical regulations and technical standards system as soon as possible to adapt to the regulatory state of food safety problems. We need to build a "dam" for food safety with strict supervision system.
The fourth chapter is the constitution of the food safety supervision system and its decision-making model. The food safety supervision system is composed of three kinds of external factors and four kinds of internal elements. We assume that the external factors are given and the internal factors are the factors that the regulators can affect. In this chapter, on the basis of the life value theory and the wilingness to pay (wilingness to) empirical study, this chapter analyzes the decision-making model of the producers and the needs of the safe food and the decision model of the government supervision by using the cost-benefit analysis and game method. The producers pursue the maximization of profit, the government seeks the maximization of social welfare. The three forces restrict each other and depend on each other, and together determine the level of food safety in a specific society.
The fifth chapter analyses the object of food safety supervision in China. This chapter analyzes the development of food industry and the status of food safety in China. With the case of "melamine", the paper analyzes the lack of self-discipline, loopholes in the regulatory system, the imperfect technical regulations and standards, the fuzzy responsibility of the product, the malpractice of the supervision system and the poor execution of the law. And other six aspects of the dilemma.
The overall characteristics of the food industry are closely related to the mode of supervision. The overall concentration of the food industry in China is not high, only the concentration of beer and beverages is high. The industry with high concentration of industry can implement a highly centralized management mode, the national unified regulatory policy is formulated, and the regulatory authorities should be main to these industries. We should implement the regulatory policy based on HACCP certification. For industries with low industrial concentration, we should focus on decentralized supervision. Each region can formulate market access regulatory policies according to its own reality and control the risk of food safety within the range of tolerance.
The sixth chapter analysis of the subject of food safety supervision in China. The effect of food safety supervision depends on the scientific division of labor between the regulators, and also depends on the degree of work effort (Vigorous) and capacity intensity (Capacity), that is, regulatory performance = regulatory attitude * regulatory capacity = regulatory attitude * (supervisor professional quality + technical equipment + other facilities), and a letter of use The number expression is: P=f (V, C), P in the form represents performance level, V represents enthusiasm, effort level, sense of responsibility, C representative ability.
China's food safety regulatory agency is composed of 9 relevant departments, the most important of which have 5 departments. The functions of these departments are cross and overlapping horizontally, vertical, semi vertical and graded management are mixed in the vertical, and there is a regulatory vacuum at the grass-roots level.
The current food safety supervision system in China has led to low efficiency in the allocation of regulatory resources. The reason is that the function of China's regulatory agencies has a wide horizontal and excessive vertical level, which has artificially increased the cost of supervision and reduced the efficiency of supervision; secondly, some local governments, especially the local governments that have "negative responsibility" for food safety. In order to improve the supervision effectiveness, we should strengthen the regulatory function at the national level, integrate the resources of various departments, narrow the horizontal regulation range, and adjust the division of division of labor. The regulation strategy, which is the main course supervision, the variety supervision is supplemented, is adjusted to the supervision strategy of "mainly variety supervision and process supervision, supplemented by process supervision". At the same time, it is necessary to strengthen the capacity construction of the supervision mechanism from four aspects: straightening up the system, improving the personnel quality, increasing the funds guarantee and improving the level of the technical equipment.
The seventh chapter is the means and tools of food safety supervision. The policy tools of food safety supervision mainly include legal means, technical regulations and food standard means, and three kinds of administrative means. On the basis of comparison and analysis of the relations between the three, the paper puts forward the construction of the system of China's food safety technology and regulations, and further clarifying the position of the functions between the three. In the process of actual supervision, whether food safety supervision can achieve the desired effect depends on the use of various means. In accordance with the principles of system engineering, only following the principle of integration, optimization and feasibility principle, scientific principle of decision-making, combination effect According to the principle of comparative analysis, we can make a policy model which is in line with China's national conditions and create science, application and Chinese characteristics. This chapter focuses on the analysis of the difficult problems in food safety supervision - small enterprises, small workshop regulatory policy mode, and the use of risk decision matrix to analyze the small workshop of small food enterprises. To allow its limited time limit for regional production, which is most in line with the requirement of maximizing the interests of the society as a whole. It is also the best choice to meet the requirements of the convenience and safety. It puts forward the policy ideas of clear supervision responsibility, innovation supervision system and classification and classification supervision.
The eighth chapter is the operation mechanism of food safety supervision. This chapter uses incentive control theory to analyze the actual process of the regulatory policy of food safety regulators to influence the target of supervision, and puts forward the use of law enforcement coefficient to measure the strength of administrative law enforcement in China. The law enforcement coefficient of China's quality inspection system in 2005, 2006, and 2007 is only 0.33,0.3 7 and 0.58, far below the basic requirements of 1. Because the laws and regulations of food safety supervision are not perfect and the policy design is not perfect, it often leads to the situation of "the stick is not painful and the carrot is not sweet".
This chapter also analyzes the theoretical and practical mode of crisis management which restricts the effectiveness of food safety supervision in China. China has entered a high crisis of food safety crisis. The food safety crisis has the characteristics of sudden and emergency, high uncertainty, limited information, fuzziness of the boundary, nonlinear development, and the analysis of the food safety crisis. The theoretical model of management and the practice model of our country put forward 4 ways to strengthen the food safety crisis management in China. One is to strengthen the theoretical research and propaganda of food safety crisis, to guide the food safety crisis management with scientific theory, two to speed up the legal process of food safety crisis management, and three to build a perfect food safety. The four is to optimize the crisis management process and realize the standardization and institutionalization of crisis management.
The ninth chapter is the method to improve the operational effectiveness of the regulatory system - performance evaluation. The fact that the leaders of the government regulators are constantly being accountable shows us that the effectiveness of food safety supervision is low. In order to supervise and urge the relevant departments of local governments to conscientiously perform their duties and to avoid problems such as work slack, dereliction of duty, and dereliction of duty, the paper studies and filters the paper. This system uses the general theory of government performance evaluation and the practical experience of various localities, combined with the practice of food safety supervision in China, and screening the index system by the Delphi method with SPSS analysis software, and forms a local food containing three dimensions, six performance fields and 20 indicators. Product safety supervision performance evaluation index system, thus providing a scientific and effective tool for strengthening supervision of regulatory departments.
The tenth chapter strengthens the policy proposals for the construction of China's food safety supervision system. Effective food safety supervision is a systematic project to improve the effectiveness of food safety supervision and regulation, and measures should be taken from the following six aspects. One is to further improve the legal and regulatory system of food safety supervision in China, "food safety law".
【學(xué)位授予單位】：西北農(nóng)林科技大學(xué)
【學(xué)位級(jí)別】：博士
【學(xué)位授予年份】：2009
【分類號(hào)】：F203

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