“食品安全”4个字，牵动人心。2012年12月27日下午，北京市人大常委会第37次会议上，53名委员全票表决通过《北京市食品安全条例》，新条例将在今年4月1日起正式实施。“在论证、修订期间，市人大常委会组织过大大小小几十次座谈、调研、征求意见”，参与立法的市人大常委会财经办副主任程晓君称，政府部门、专家、生产企业、市民及小摊贩代表，都被邀请来听取意见，“兼听则明”。草案曾被删除的问题食品整体“区域退市”、食品安全犯罪“终身禁入”等条款，最终又被加入。删减与恢复之间，存在怎样的争议和犹豫？程晓君为我们讲述了背后的故事。

"Food safety"Four words,Affects the heart.December 27, 2012 in the afternoon,Beijing municipal people's congress standing committee meeting 37,53 members vote through the full fare[Beijing food safety regulations],The new regulations will be in April 1 officially implemented."In the argument/During the revision,The municipal people's congress standing committee organization have greatly small dozens of times discussion/research/For advice",The municipal people's congress standing committee in legislation, deputy director of the finance and economics do ChengXiaoJun says,Government departments/experts/Production enterprise/On behalf of the citizens and vendor,All are invited to listen to advice,"enlightened".The draft has been deleted problem food whole"Area delisted"/Food safety crime"Life stands"clause,In the end, is to join.Cut between and recovery,What is the dispute and hesitate?ChengXiaoJun tells the story behind.

　　1 区域退市 1 area delisted

　　临时控制VS地方保护 Temporary control VS local protection

　　问题食品区域退市，可追溯到2003年2月的《北京市食品安全监督管理规定》，其提出执法部门有权对发现问题食品严重的地区实施区域性“封杀”，即该地区产品一律不得进入北京市场。2007年的《北京市食品安全条例》也明确了区域退市。

Problem food area delisted,Can be traced back to February 2003[The food safety supervision and management regulations],The proposed law enforcement department shall have the right to find out problems food serious in the implementation of regional"force-out",That is the region products are not allowed to enter the market in Beijing.2007[Beijing food safety regulations]Also defined the regional delisted.

　　市民们熟悉的广东潮安果脯蜜饯、山东龙口粉丝、河南许昌腐竹等，都因多次不合格而被整体退市过。“北京每次都会致函通报给产地政府，效果明显”，市食品办人士介绍，产地政府都迅速整治，提高整体合格率。

People familiar with the guangdong tide Ann sass/Shandong longkou vermicelli/Henan xuchang bean curd stick, etc,Because of the unqualified many times by the whole had to withdraw from the market."Beijing always write to inform the government of origin,effect",City food do personage introduction,Government regulation of quickly,The improvement of the whole percent of pass.

　　去年4月，《北京市食品安全条例(修订草案送审稿)》征民意时沿用了区域退市。

Last April,[Beijing food safety regulations(Revised draft SongShenGao)]Sign opinion used when regional delisted.

　　然而，修订草案在去年9月26日送交市人大常委会第35次会议首次审议前，区域退市条款被“意外”删除。

however,The draft amendment in September 26 to the municipal people's congress standing committee meeting 35 first before review,Regional delisted clause was"accident"delete.

　　市人大常委会财经办副主任程晓君介绍，这主要是市政府法制办听到了外界不同意见，认为区域整体退市有地方保护或垄断之嫌，可能会牵连合格产品。

The municipal people's congress standing committee, deputy director of the finance and economics do ChengXiaoJun is introduced,This is mainly the municipal government legislative heard outside different opinion,Think the overall regional retreat city a place protection or monopoly too,May be implicated qualified products.

　　市人大常委会提出不同看法。市人大财经委副主任委员赵巨鹏作审议意见报告时直接指出，北京从2007年起实行了9次区域退市，在防控食品风险上取得了较好效果，“应该将这一措施继续通过立法确定下来”。

The municipal people's congress standing committee put forward different views.CaiJingWei municipal people's congress deputy director of the ZhaoJuPeng committee for deliberation opinions the report pointed out that directly,Beijing since 2007 to nine sub-regional delisted,In the prevention and control of food risk achieved good results,"Should the measures decided to continue through the legislation".

　　程晓君说，事后人大也展开意见征求和座谈，很多部门、人大代表、市民都认为北京就应该加大防控，因为北京85%的食品都来自外埠供应，源头控制难度较大，防控输入型的食品安全风险需进一步加强。

ChengXiaoJun said,After the National People's Congress also started comment and discussion,Many department/National People's Congress/People all think that Beijing should increase the prevention and control,Because Beijing is 85% of the food supply comes from the outgoing,Source control difficult,Prevention and control input type of food safety risk further strengthen.

　　为更充分地“留住”这个临时控制措施，市人大常委会委员们查找多个法律法规，摆出力证：一是区域退市为国际惯例；二是上位法国家《突发事件应对法》规定，政府可以终止可能导致危害扩大的生产经营活动及其他措施；三是上海也有相关规定。

For more fully"keep"The temporary control measures,The municipal people's congress standing committee members find more laws and regulations,Set out testified:One is the regional retreat city for international practice;The second is ShangWeiFa countries[Emergency response method]provisions,The government may terminate may cause harm to expand production and operation activities and other measures;The third is Shanghai also have relevant regulation.

　　在市人大常委会二审稿以及去年12月底的表决稿中，区域退市最终得以保留，还得到完善，规定食品安全风险消除或采取临时控制措施的条件和原因消除后，应及时解除。“也就是说区域退市不是永久的”，程晓君说。

In the municipal people's congress standing committee reviewed and two last December in the legislative,Regional delisted finally able to keep,Also improve,Regulation of food safety risk control measures to eliminate or take temporary the conditions and reason after elimination,Should remove in time."That area delisted is not permanent",ChengXiaoJun said.

　2 禁入时间 2 stands time

　　终身禁入VS5年不当高管 Life stands in VS5 improper executives

　　食品安全犯罪被追究刑事责任的人，是“终身禁止入行”还是“5年不能在食品企业当高管”，同样有不小争议。

Food safety is a crime shall be investigated for criminal responsibility person,is"Lifetime ban into the line"or"5 years can't in food enterprise when executives",Also a lot of controversy.

　　程晓君介绍，在2007年的《北京市食品安全条例》里规定，食品违法是被追究刑事责任的，“终身不得担任食品生产经营企业的法定代表人和负责人”。

ChengXiaoJun introduced,In 2007[Beijing food safety regulations]Provisions in,Food is illegal shall be investigated for criminal responsibility,"Life may not be as food production and operation the legal representative of the enterprise, and the person in charge".

　　2012年4月，市政府法制办将修订草案公开征集意见时，首次提到因食品犯罪被追刑责，“终身不得投资食品行业，从事食品生产经营活动”。显然，这比不当一把手要严厉得多。

In April 2012,The municipal government will legislative amendments to the public solicitation opinion,Because the first mention food crime was made the punishment,"Life may not be the food industry investment,Engaged in food production and operation activities".obviously,This is not a much sterner.

　　市食品办负责人介绍，这是根据信用程度，实行食品生产经营者分类分级管理，首次设置严格的行业禁入规定，为的就是要加大惩戒力度。

City food do chief introduction,This is according to the degree of credit,The food producers and traders classification classification management,The first set strict regulations to forbid into the industry,For is to increase the punishment strength.

　　可在送交市人大常委会一审前的草案中，“终身禁入”条款不见了，改为“未经许可从事食品生产经营，因食品安全犯罪被处刑罚，执行期未满5年的，不得担任食品生产经营企业的董事、监事、高管”。

In the first instance to the municipal people's congress standing committee before the draft,"Life stands"Clause gone,to"Engaged in food production or marketing without permission,For food safety crime punishment by place,Execution under 5 years,Enterprises engaged in food production or marketing shall not act as directors/supervisors/executives".

　　禁入的门槛和尺度都降低了。程晓君说，“终身”改“5年”，反对的声音主要认为该规定过于严苛，尚没有禁止从事某种职业的规定，也不利于改过自新，不能一棍子打死不给人机会等。

The threshold of prohibiting and scale are reduced.ChengXiaoJun said,"life"change"Five years",The voice of against the main think the rules are too harsh,It is not prohibited from engaging in some professional regulations,And also to turn over a new leaf,Not a stick kill not give a person opportunity, etc.

　　市人大也听到很多声音，常委会委员和更多的代表还是提出对食品违法犯罪行为一定要严厉追责处罚，市人大法制委员会副主任委员卜世成甚至表示，还应加大信用惩戒的力度。加上此时国务院一个正在征集意见的食品安全责任追究办法，也提到这方面规定，“说明国家有这样的信号传递出来”，程晓君说。

The municipal people's congress also hear a lot of sound,The standing committee and more representative or puts forward food illegal and criminal behavior must be severely punished after duty,The municipal people's congress deputy director of the commission of legislative affairs of BuShiCheng even said,Should also increase the strength of credit discipline.And now the state council a are solicit opinion of food safety accountability measures,Also mentioned that this regulation,"That country has the same signal transfer out",ChengXiaoJun said.

　　于是，2012年11月29日，市人大常委会对修订草案二审，食品犯罪“终身禁入”经重新修改后被重新加了进来。并且立法机构把禁入的条件规定得更加明确：“食品生产经营者生产经营不符合安全标准或者有毒、有害食品，对人体健康造成严重后果、构成犯罪的，终身不得从事食品生产经营活动。”

so,On November 29, 2012,The municipal people's congress standing committee revised draft of the second instance,Food crime"Life stands"The modified again to add in.The legislature and the conditions of prohibiting more definite provisions:"The food producers and traders to the production and business operation does not conform to safety standards or poisonous/Harmful food,On human health caused serious consequences/Constitute a crime,Life shall not be engaged in food production and operation activities."

3 食品作坊摊贩 3 food workshop vendors

　　全市规范VS区县自定 The standard VS area county custom

　　小作坊和小摊贩，一直是食品安全的薄弱环节和监管难点。

Small mill and vendor,Food safety has been the weak link and regulatory difficulties.

　　市人大常委会专门调研、走访过一些小作坊。给程晓君留下深刻印象的是通州刘老公庄村一个做通州小吃饹馇饸的作坊，口碑不错，只是此前并没有相关标准，小吃又达不到大规模生产经营，一直没取得生产许可证。

The municipal people's congress standing committee special investigation/Visit some small mill.To ChengXiaoJun was impressed tongzhou LiuLaoGong zhuang village a tongzhou snacks Ge one Cha workshop,Public praise good,Just before and no related standards,Snacks and can not reach the mass production and operation,Hasn't been obtaining the production license.

　　程晓君记得，作坊老板一听说要政府打算给作坊发放准许证，非常赞同，说“就希望能有一个合法身份”。

ChengXiaoJun remember,The boss of a workshop to the government intends to issue permit to the workshop,Very agree with,said"Will hope to have a legal status".

　　据介绍，国家在《食品安全法》对食品作坊和摊贩，是授权由各省区市人大常委会来制定。各地因此也不一样，宁夏由人大专门制定了对食品摊贩和作坊条例，上海、浙江则在食品安全条例中设专章来规范，“北京也曾在征集意见稿中设了一章，后又取消，因为特别的规定并不足以支撑一章”。

According to introducing,Countries in[Food safety]On food workshop and vendors,Is authorized by the provincial people's congress standing committee to formulate.So all is not the same,By the National People's Congress in ningxia specifically formulated for food vendors and workshop regulations,Shanghai/Zhejiang is in the food safety regulations have discussed in to regulate,"Beijing has also solicit opinion draft set in the chapter,And cancel,Because of the special provisions is not enough to support a chapter".

　　几次审议中，对食品作坊和摊贩的监管究竟是全市统一规范，还是区县各自管理，哪种方式更适合北京，草案进行了多次修改。

Several times in the,On food workshop and the supervision of the vendor what is the unified standard,Counties or their management,Which way is more suitable for Beijing,The draft has carried on many times the modification.

　　二审时，拟规定“市质监部门组织编制全市指导目录，明确食品生产加工作坊的生产加工条件和要求。区县政府根据目录，编制本区域生产加工食品的品种目录”。食品摊贩则明确由城管来管，从一审的到街乡登记改为须持经营证上岗，消费者可对经营证上的内容监督。

When the second instance,Quasi provisions"City qualitative inspect branch organization establishment the guidance catalogue,Clear food production and processing workshop production and processing conditions and requirements.Area county government according to the directory,Making the regional production and processing food varieties directory".Food vendors is clear by urban management to tube,From the first to the street to land registration shall hold a business card mount guard,Consumer can business card to the content of supervision.

　　而到最后表决稿，食品作坊又有了权限调整：市质监部门负责提出全市食品生产作坊监管工作指导意见，区县政府再根据指导意见制定本区域品种目录和生产条件。

And to the last legislative,Food workshop and have the access adjustment:Municipal quality supervision department is responsible for the food production workshop proposed regulatory work instruction opinion,Area county government according to the guiding opinions to make this area varieties directory and production conditions.

　　“之所以这样修改，是综合考虑”，程晓君解释，小作坊在东城、西城等城区已经没有，特别是各区县存在的小作坊生产的小食品种类、条件都不一样，全市范围不太好做统一规范，区县更了解实际情况，因此最终还是决定把目录制定的权限下放到区县。

"Is this change,Is considering",ChengXiaoJun explain,Small mill in the east/There is no city west, etc,Especially in each district and county of existing small mill production of small food types/Conditions are not the same,The range is not too good do a unified and standard,Districts and counties to know more about the actual situation,So I finally decided to set the directory permissions to the districts and counties.

　　■ 项目档案 S project files

　　《北京市食品安全条例》修订历时1年3个月，针对北京特大型消费城市的特点，强化源头管理和全程监控，防控输入性风险，强化多部门的无缝隙监管和食品安全风险监测评估。

[Beijing food safety regulations]Revised lasted 1 year 3 months,According to the characteristics of large consumption of Beijing city,Strengthen the source management and process monitoring device,Prevention and control input resistance risk,Strengthen the supervision departments without gap and the food safety risk monitoring and evaluation.

　　其中在市场准入、食品小作坊、食品摊贩、农产品、餐饮、无店铺经营上的食品安全监管，都具有“北京特色”，比如给食品小作坊发放准许证，食品摊贩在划定区域内持经营证上岗。同时以立法的形式确定了生产经营问题食品构成犯罪的终身不得从事食品生产经营，加大违法惩戒力度。

Among them in the market access/Food of small/Food vendors/Agricultural products/catering/WuDianPu the management of food safety supervision,has"Beijing characteristics",Such as to food of small issue permit,Food vendors in the designated area the business card mount guard.At the same time in the form of legislation to determine the production business problem food constitute a crime life shall not be engaged in food production and operation,Increasing illegal disciplinary power.

■ 立法进程 S legislative process

　　●2007年11月30日

- on November 30, 2007

　　北京市人大常委会通过《北京市食品安全条例》，2008年起在全国率先施行。

Beijing municipal people's congress standing committee through[Beijing food safety regulations],Since 2008, and in the lead in.

　　●2011年9月

- in September 2011

　　市人大常委会通过立项，《北京市食品安全条例》由此启动修订。

The municipal people's congress standing committee through the project,[Beijing food safety regulations]The revised start.

　　●2012年4月6日到4月25日

- April 6, 2012 to April 25

　　市政府法制办对《北京市食品安全条例(修订草案送审稿)》公开征求意见。

The municipal government of affairs[Beijing food safety regulations(Revised draft SongShenGao)]Public to solicit their opinions.

　　●2012年9月

- in September 2012

　　送交市人大常委会一审。

To the municipal people's congress standing committee first.

　　●2012年11月

- November 2012

　　市人大常委会对草案二审。

The municipal people's congress standing committee on the draft trial of second instance.

　　●2012年12月27日

- December 27, 2012

　　市人大常委会表决通过，修订后的《北京市食品安全条例》将于今年4月实施。（记者 廖爱玲本版摄影 实习生 徐洋）

The municipal people's congress standing committee vote to pass,revised[Beijing food safety regulations]The implementation of the April this year.(Reporter LiaoAiLing this XuYang photography interns)