超越机构重组:走向调适性监管
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摘要
本文将1992年以后我国食品安全监管体制改革划分为开放式监管、分环节互补式监管、综合协调互补式监管、集权互补式监管四个阶段。尽管监管机构不断重组,监管权力从分散走向集中,依赖发证的监管方式却并未发生实质性改变。监管方式的选择是监管理念的体现,"发证式监管"反映的是一种静态的政府"全能主义"监管理念。本文认为,破除我国食品安全监管困境,必须超越机构重组,引入调适性监管理念,认识到监管并非一劳永逸,而是动态性的,必须能够随着时间变化、科学技术进步、认知水平的发展而不断调整,将新的信息和技术进步不断整合进监管中来。
This article divides the reform of China's food safety regulation system stemming from 1992 into four stages:open regulation,separated complimentary regulation,synthetical complimentary regulation and centralized complimentary regulation.Although regulatory agencies have been repeatedly reconstructed,the way of regulating relying on entry has never changed practically.The way of regulating embodies the basic regulating ideas,namely by granting entry permits,which assumes a static and almighty state.This article argues that to tackle down the dilemma of current food safety regulation,our government must go beyond the reorganizations of regulatory agencies and adopt the idea of adaptive regulation.Regulation is not something that can be done once and forever,but a dynamic process which could change and adapt itself with the change of time,technology improvement and cognitive levels and combine emerging information and technology improvement into the process.
This article divides the reform of China's food safety regulation system stemming from 1992 into four stages:open regulation,separated complimentary regulation,synthetical complimentary regulation and centralized complimentary regulation.Although regulatory agencies have been repeatedly reconstructed,the way of regulating relying on entry has never changed practically.The way of regulating embodies the basic regulating ideas,namely by granting entry permits,which assumes a static and almighty state.This article argues that to tackle down the dilemma of current food safety regulation,our government must go beyond the reorganizations of regulatory agencies and adopt the idea of adaptive regulation.Regulation is not something that can be done once and forever,but a dynamic process which could change and adapt itself with the change of time,technology improvement and cognitive levels and combine emerging information and technology improvement into the process.
引文
(1)Lieberthal,Kenneth,and Michel Oksenberg.Policy Making in China:Leaders,Structure and Process.The United Kingdom:Princeton University Press,1990.
(2)郑风田、胡文静:《从多头管理到一个部门说话——我国食品安全监管体制急待重塑》,《中国行政管理》2005年第12期。
(3)丁煌、孙文:《从行政监管到社会共治:食品安全监管的体制突破——基于网络分析的视角》,《江苏行政学院学报》2014年第1期。
(4)Leibenstein,H.“Organizational or Frictional Equilibria X-efficiency and the Rate of Innovation.”Quarterly Journal of Economics,83(1969):600-623.
(5)(6)Landau,Martin.“Redundancy,Rationality,and the Problem of Duplication and Overlap.”Public Administration Review,39(1969):346-358.
(7)Laffont and Martimort.“Separation of Regulators against Collusive Behavior.”The Rand Journal of Economics,30(1999):232-262;Martimort,David.“The Multiprincipal Nature of Government”.European Economic Review,40(1996):673.
(8)之所以起始时间选取1992年,是因为1992年我国提出了建立市场经济体制的目标,自此食品领域逐渐实行政企分开。本文重点关注市场经济体制确立之后,食品安全监管机构的重组和监管沿革。
(9)(11)马英娟:《走出多部门监管的困境——论中国食品安全监管部门间的协调合作》,《清华法学》2015年第3期。
(10)王方杰:《相互揭发郑州馒头之战有续篇》,《中国青年报》2001年3月28日。
(12)马英娟:《独立、合作与可问责——探寻中国食品安全监管体制改革之路》,《河北大学学报(哲学社会科学版)》2015年第1期。
(13)来自于访谈记录。访谈时间:2016年4月13日。访谈地点:广州市越秀区食药监局。
(14)(17)Eichler,H.-G.,et al.“Adaptive Licensing:Taking the Next Step in the Evolution of Drug Approval.”Clinical Pharmacology&Therapeutics,91(2012):426-437.
(15)Eichler,H.-G.,et al.“From Adaptive Licensing to Adaptive Pathways:Delivering a Flexible Life-span Approach to Bring New Drugs to Patients.”Clinical Pharmacology&Therapeutics,97(2015):234-246;Husereau,D.,C.Henshall,and J.Jivraj,“Adaptive Approaches to Licensing,Health Technology Assessment,and Introduction of Drugs and Devices.”Int.J.Technol.Assess.Health Care,12(2014):1-9.
(16)Breyer,Stephen.Regulation and Its Reform.Cambridge,Massachusetts:Harvard University Press,1982.
(17)戚建刚:《向权力说真相:食品安全风险规制中的信息工具之运用》,《江淮论坛》2011年第5期。
(2)郑风田、胡文静:《从多头管理到一个部门说话——我国食品安全监管体制急待重塑》,《中国行政管理》2005年第12期。
(3)丁煌、孙文:《从行政监管到社会共治:食品安全监管的体制突破——基于网络分析的视角》,《江苏行政学院学报》2014年第1期。
(4)Leibenstein,H.“Organizational or Frictional Equilibria X-efficiency and the Rate of Innovation.”Quarterly Journal of Economics,83(1969):600-623.
(5)(6)Landau,Martin.“Redundancy,Rationality,and the Problem of Duplication and Overlap.”Public Administration Review,39(1969):346-358.
(7)Laffont and Martimort.“Separation of Regulators against Collusive Behavior.”The Rand Journal of Economics,30(1999):232-262;Martimort,David.“The Multiprincipal Nature of Government”.European Economic Review,40(1996):673.
(8)之所以起始时间选取1992年,是因为1992年我国提出了建立市场经济体制的目标,自此食品领域逐渐实行政企分开。本文重点关注市场经济体制确立之后,食品安全监管机构的重组和监管沿革。
(9)(11)马英娟:《走出多部门监管的困境——论中国食品安全监管部门间的协调合作》,《清华法学》2015年第3期。
(10)王方杰:《相互揭发郑州馒头之战有续篇》,《中国青年报》2001年3月28日。
(12)马英娟:《独立、合作与可问责——探寻中国食品安全监管体制改革之路》,《河北大学学报(哲学社会科学版)》2015年第1期。
(13)来自于访谈记录。访谈时间:2016年4月13日。访谈地点:广州市越秀区食药监局。
(14)(17)Eichler,H.-G.,et al.“Adaptive Licensing:Taking the Next Step in the Evolution of Drug Approval.”Clinical Pharmacology&Therapeutics,91(2012):426-437.
(15)Eichler,H.-G.,et al.“From Adaptive Licensing to Adaptive Pathways:Delivering a Flexible Life-span Approach to Bring New Drugs to Patients.”Clinical Pharmacology&Therapeutics,97(2015):234-246;Husereau,D.,C.Henshall,and J.Jivraj,“Adaptive Approaches to Licensing,Health Technology Assessment,and Introduction of Drugs and Devices.”Int.J.Technol.Assess.Health Care,12(2014):1-9.
(16)Breyer,Stephen.Regulation and Its Reform.Cambridge,Massachusetts:Harvard University Press,1982.
(17)戚建刚:《向权力说真相:食品安全风险规制中的信息工具之运用》,《江淮论坛》2011年第5期。