食品安全風險規範之「三級品管」制度

The Three-tier Quality Control System for the Risk Regulation of Food Safety

風險規範是現代行政管制極為重要的規範方式之一，尤其在食安與環境的法令制定以及執行中，風險的認識、評估的要求，在在扮演重要的角色、乃至於貫穿整個法制應有的運作。我國食品安全衛生管理法即開宗明義地強調，食品安全風險管理應建構風險評估體系、符合事先預防原則。因此，在主管機關建構的食品安全三級品管制度之下，尤其針對業者自主管理（一級品管）以及第三方驗證體系（二級品管），又應如何連結此一基本概念？換言之，除了風險評估外，所謂的風險溝通與風險管理，要如何實踐於一級品管與二級品管中？當風險規範作為行政管制的上位概念時，要如何體現、如何使食安法本身所強調與應確立的原則能真正內化於制度運作中？這些問題，乃至於其應有的根本認識以及可預期會產生的問題，便是本文嘗試予以提出、釐清與強調的。此外，為求正本清源，本文也將嘗試提出初步的具體建議，希望能做為在食品安全規範上應有的思考，期冀藉此能有助於風險規範的落實與食品安全的真正實踐。 In Taiwan, based on the Food Safety and Sanitation Act, amended on February 5, 2014, the government has been authorized to set up a new legal structure, so-called the three-tier quality control system, as a new approach for reshaping the food safety regime to deal with food safety problems. This system includes self-management by food businesses, testing by independent institutions, and inspections by the government. In short, from each perspective, this system brings all participants in the food safety legal regime together in the effort to ensure the safety of the nation's food products. In this paper, I am not only to introduce the new system and its practice in Taiwan, but I also would like to discuss and analyze the problems and shortages of this legal structure, especially under the theories of risk regulation. In sum, for food safety regulation, risk assessment, risk management, and risk communication, as the very fundamental, shall be included and realized into the legal system. But, how is the reality? Having the basic understanding of risk regulation for food safety is actually a bridge for Taiwan, as a connection, to the outside world. Therefore, the lesson from Taiwan, successful or failed, might be a good one to learn for the rest of world.