整体性治理视角下食品安全监管体制研究

发布时间：2018-02-10 23:56

本文关键词： 食品安全政府监管碎片化整体性治理　出处：《云南财经大学》2013年硕士论文　论文类型：学位论文

【摘要】：权力碎片化已成为公共行政首要解决的难题。“官僚制”组织以专业化分工提升行政效率，但组织边界隔阂、关系对立、结构冲突使得政府管理职能陷于四分五裂。食品安全监管的权力碎片化有其独特的历史原因和社会背景，从计划经济体制转轨到市场经济体制的转型时期，，受到路径依赖的影响，形成了“多部门分环节”的监管体制，并随着体制变迁、社会转型、政策法规、机构改革等诸多因素而不断稳固。但是，天洋“毒饺子事件”、三鹿“三聚氰胺奶粉事件”、双汇“瘦肉精猪肉事件”、上海“染色馒头事件”等一系列事件表明目前政府食品安全存在权力分散功能割裂责任推诿部门行政等弊端，以至于人民身体健康和社会稳定受到巨大的威胁。如何解决这些问题，学界从经济学、法学、管理学、行政学等学科采取多种途径来完善政府监管部门之间的协作以及吸纳有助于解决问题的力量。因此，整体性治理理论恰好提供了一种能应够解决困境的办法。碎片化的对立面是整体化，不是专业化。官僚制的分工和专业化必然伴生协调需求，因而协调是公共行政永恒的主题。在新公共管理的衰微和数字时代来临的背景下，整体性治理着眼于政府内部机构和部门的整体性运作，主张管理从分散走向集中，从部分走向整体，从破碎走向整合。本文依据希克斯等人提出的“目的”和“手段”辨析框架，通过整体性治理理论的分析框架对食品安全监管及其适用性进行分析，验证该理论对于食品安全监管中存在“七八个部门管不好一头猪”、“都管、都不管、都管不好”、“九龙治水”等现象的解释力以及回应研究背景中提出的问题。在此基础上，论述政府食品安全监管职能，分析食品安全监管体制变迁产生的路径依赖，并结合当代中国食品安全典型案例，从食品安全问题发生原因、内在机理及演变过程，归纳政府食品安全监管职能缺失原因，找到食品安全监管“碎片化”的根源。整体性治理的核心思想跨界合作，是对碎片化的一种回应。基于食品安全监管中各个不同治理主体之间的冲突，有必要强化上下级政府之间、同级政府之间、政府监管部门之间、公私部门之间的协调与协作，树立整体政府的核心价值及其治理理念，把社会多元治理力量纳入到协作的制度内，建构政府内部之间、部门之间及社会监管主体之间的协作网络结构，整合食品安全监管目标、信息与功能，弥补政府跨界协作不足，容纳社会治理力量，树立公共利益的价值导向，建立政府—市场—社会之间的合作伙伴关系，在目标、功能、信息、政府与社会进行整合，弥补政府监管职能的碎片化状态，实现“从农田到餐桌”全过程的无缝隙。
[Abstract]:The fragmentation of power has become the most difficult problem for public administration. "bureaucracy" organizations use specialized division of labor to promote administrative efficiency, but the organizational boundaries are estranged and relations are opposed. The structure conflict makes the government management function fall apart. The power fragmentation of food safety supervision has its unique historical reason and social background, the transition period from planned economy system to market economy system. Under the influence of path dependence, the regulatory system of "multi-sector and sub-links" has been formed, and with the changes of the system, social transformation, policies and regulations, institutional reform and many other factors, etc. A series of events such as the Tianyang "toxic dumplings incident", the Sanlu "melamine milk powder incident", the Shuanghui "lean meat essence pork incident", the Shanghai "dyed steamed bread incident" and other events show that there is a decentralization of power in the current government food safety? Functional fragmentation? Shirking responsibility? The malpractice of department administration is so great that people's health and social stability are greatly threatened. How to solve these problems, academic circles from economics, law, management, Administrative science and other disciplines adopt various ways to perfect the cooperation between government regulatory departments and absorb the power that helps solve the problem. Therefore, the theory of holistic governance provides a solution to the dilemma. The opposite of fragmentation is integration, not specialization. The division of labor and specialization of bureaucracy must be accompanied by coordination needs, so coordination is the eternal theme of public administration. In the context of the decline of new public management and the advent of the digital age, coordination is the eternal theme of public administration. Holistic governance focuses on the overall operation of government internal institutions and departments, and advocates management from decentralization to concentration and from part to whole. From fragmentation to integration. According to the framework of "purpose" and "means" put forward by Hicks et al, this paper analyzes the food safety supervision and its applicability through the framework of holistic governance theory. To verify the existence of this theory in food safety supervision, such as "seven or eight departments can't manage a pig well", "no matter what," and "Jiulong water control", etc., and respond to the questions raised in the background of the research. On this basis, This paper discusses the function of government food safety supervision, analyzes the path dependence caused by the change of food safety supervision system, and combines with the typical case of food safety in contemporary China, from the causes, internal mechanism and evolution process of food safety problems. Induces the government food safety supervision function flaw reason, finds the food safety supervision "fragmentation" the root cause. The core idea of holistic governance is cross-border cooperation, which is a response to fragmentation. Based on the conflicts among different governing bodies in food safety supervision, it is necessary to strengthen the relationship between the upper and lower governments and the governments at the same level. The coordination and cooperation between the government supervision departments and the public and private sectors, the establishment of the core value of the whole government and its governance concept, the integration of the social pluralistic governance forces into the cooperative system, and the construction of the internal government. The cooperative network structure between departments and social regulatory bodies, integrating the objectives, information and functions of food safety supervision, making up for the lack of cross-boundary cooperation between governments, accommodating social governance forces, and establishing the value orientation of public interests. To establish a partnership between government, market and society, integrate the goal, function, information, government and society, make up the fragmented state of government supervision function, and realize the whole process of "from farmland to table".
【学位授予单位】：云南财经大学
【学位级别】：硕士
【学位授予年份】：2013
【分类号】：F203;F426.82

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