食品执法“首违不罚”制度的现实困境与完善路径

The Realistic Challenges and Institutional Improvement of the"No Punishment for First Violation"System in Food Law Enforcement

食品安全监管“首违不罚”制度是由基层实践推动的回应型立法,作为一种柔性执法的新方式,体现了行政处罚比例原则的理念,有助于优化法治营商环境。但实践中,由于地方性试点未能实现《行政处罚法》与《食品安全法》间的有效衔接,出现了相关监管部门对“首次违法”的起讫认定差异、对“危害后果轻微”与“没有危害后果”混淆适用、不当地限制了行政裁量空间和行政机关执法过程缺乏程序规制等现实问题。面对上述法治困境,应当调和“一般法”与“特别法”之间的关系,统一“首次违法”的立法规定、厘清“危害后果”的界定边界、优化执法机关的裁量空间、完善清单的程序规范构建。

The"no punishment for first violation"system in food safety supervision and law enforcement is a responsive legislation promoted by grassroots practices.As a new flexible law enforcement method,it reflects the concept of proportional administrative penalties and contributes to optimizing the legal business environment.However,in practice,due to the lack of effective alignment between the Administrative Penalty Law and the Food Safety Law in local pilot projects,several issues have emerged,including differences in determining the start and end of"first violation"by local market supervision and management departments,confusion between"minor harm consequences"and"no harm consequences",improper restrictions on administrative discretion,and a lack of procedural regulations in the enforcement process of administrative agencies.In the face of these legal challenges,it is necessary to reconcile the relationship between general law and lex specialis,unify legislative provisions on"first violation",clarify the boundary of"harmful consequences",optimize the discretion of law enforcement agencies,and improve the construction of procedural norms of the list.