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    2020年中国中国食药安全类行政公益诉讼制度实践与理论反思

    摘要

    食品药品安全属于典型的社会性管制领域,检察公益诉讼作为行政执法的补充手段,弥补现有行政机制存在的不足,发挥社会共治作用。对2015~2019年食药安全类公益诉讼案件进行定量分析,发现办案数量明显增加;诉前程序案件量大幅增长,与诉讼程序案件比例不对称;刑事附带民事公益诉讼的比例最高,民事公益诉讼次之;民事与行政公益诉讼案件的线索来源不同。从定性方面来看,食药安全违法行为主体以“三小”为主,行政机关虽以客观归责原则追究责任,但因执法力量不足常常存在执法空白的领域。检察公益诉讼办案的空间多从行政执法空白处入手,查处的违法后果包括扰乱市场秩序和危害食药安全两种类型,而行政机关违法表现为不履职或者不充分履职。未来应在区分食药安全监管行为与食药市场监管行为、加强食药安全类检察公益诉讼与刑事检察衔接的基础上,从正确认识行政公益诉讼的局限性、加强行政机关与检察机关之间的合作交流、灵活运用公益诉讼检察建议和社会治理类检察建议、完善两法衔接机制等路径出发,完善食药安全类行政公益诉讼机制。

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    Abstract

    Food and drug safety belongs to a typical social control field. Procuratorial public interest litigation,as a supplementary means of administrative law enforcement,makes up for the shortcomings of the existing administrative mechanism and plays the role of social co-governance. Quantitative analysis of food and drug safety public interest litigation cases during 2015-2019 found that the number of cases handled increased year by year;the number of pre-litigation cases has increased greatly,which is asymmetric with the proportion of litigation cases;the proportion of criminal incidental civil public interest litigation is the highest,followed by civil public interest litigation;the clue sources of civil and administrative public interest litigation cases are different. From a qualitative point of view,the main body of food and drug safety violations is “three small ones”. Although the administrative organs pursue their responsibilities according to the objective imputation principle,there are often areas of law enforcement gaps due to the lack of law enforcement power. The space for procuratorial public interest litigation is mostly from the blank of administrative law enforcement. The illegal consequences of investigation include disrupting market order and endangering food and drug safety,while the illegal performance of administrative organs is non-performance or insufficient performance. In the future,on the basis of distinguishing food safety supervision from food market supervision,strengthening the connection between public interest litigation and criminal prosecution,we should improve the administrative public interest litigation mechanism of food safety by correctly understanding the limitations of administrative public interest litigation,strengthening cooperation and exchanges between administrative organs and procuratorial organs,flexibly using procuratorial suggestions of public interest litigation and social governance,and perfecting the connection mechanism between the two methods.

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    作者简介
    刘艺:刘艺,法学博士,中国政法大学法治政府研究院教授、博士生导师,检察公益诉讼研究基地执行主任,主要研究方向为行政法基础理论、行政诉讼制度、行政检察制度。
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