食品安全、社会系统失灵与公共政策--兼论产业政策、腐败与雾霾治理

摘要

Failure in food safety governance,which is caused by market failure,government failure and social co-governance failure and their interactions,is a typical case of social system failure.This paper analyzes the food safety regulation dilemma and its formation,and defines the concept of social system failure and its connotation.Three basic assumptions are proposed:firstly,market or government gov-ernance cannot solve the social system failure;secondly,social co-governance alone cannot solve the social system failure either;and thirdly,formal governance or informal governance alone cannot solve the social system failure.Based on the three assumptions,this paper puts forward a number of public policies and strategies,including formal governance policies such as policy frightening,punishing, and traceability system,informal governance policies such as risk communication,value reconfigura-tion and behavior reconfiguration,and the dynamic integration of formal and informal governance (e. g.mixed governance of information technology and institution arrangements).It is argued that the policies designed to deal with the social system failure can also work in industry policy governance, corruption governance and haze governance.This paper also proposes the governance of social system failure and offsetting rules based on the analyses.%市场失灵、政府失灵和社会共治失灵及其交互导致的食品安全治理失灵，是一种典型的社会系统失灵现象。针对这种现象，基于食品安全"监管困局"及其形成机制，定义社会系统失灵的概念和内涵，提出社会系统失灵的三个核心问题，即单纯依靠市场或政府治理不能解决社会系统失灵、单纯依靠社会共治不能解决社会系统失灵、单纯依靠正式或非正式治理不能解决社会系统失灵。在社会系统失灵三个核心问题基础上提出的解决社会系统失灵的公共政策方向及策略，包括震慑、惩罚与追溯等正式治理，风险交流、价值重构、重塑行为规则等非正式治理，及二者的动态混合治理，如信息技术与制度安排的混合治理等。对社会系统失灵的分析可以拓展到对产业政策治理、腐败治理和雾霾治理的分析中，提出社会系统失灵的治理与抵消性规则。