摘 要
现代生产许可证制度自从1984年实施以来，对加强企业质量管理、提高产品质量水平，特别是在产品质量安全监管方面发挥了非常重要的作用。但是随着我国市场经济不断完善，生产许可证制度的一些弊端也逐渐显现，在生产许可行为上主要表现为生产许可行为的法理依据还不充分导致生产许可事项过多，如生产许可、特种设备制造、安装、维修许可、计量器具制造许可等等，在一定程度上阻碍了市场经济的发展；对生产许可行为在理论上研究不深入导致片面夸大生产许可在产品质量监管中的作用,如一系列食品质量安全问题出现以后,国家对食品及其相关产品实行大范围的市场准入,生产许可在一定程度上成了行政机关彰显行政作为的工具,浪费行政资源；生产许可行为单方意志性导致的生产许可环节多、周期长，增加了社会的总成本；生产许可行为的裁量性导致的生产许可条件不具体、程序不透明、程序不规范；生产许可审批人员的人性自私本能行为导致的生产许可审查不公正；生产许可行为的强制性导致的生产许可责任不明确、监督机制不健全；重事前许可、轻事后监管，重许可收费、轻监督服务等问题，为权力寻租提供了基础，直接导致腐败，不仅制约了市场这只“无形的手”在资源配置中基础性作用的发挥，在一定程度上阻碍了经济和社会的发展，也不利于“加快行政管理体制改革，建立服务型政府”的行政管理体制改革目标的实现。而且我国地域辽阔,生产力发展水平参差不齐,既有规模以上大型企业集团,又有大量传统的以家庭为单位小的手工业作坊（如小食品作坊），这些称不上是企业的作坊根本不具备国家规定的生产许可条件，但这些作坊又是巨大人口谋生就业的基本的手段，并且这种情况在国家大力发展城镇建设的情况下还会长期存在，统一实行生产许可既不实际也不可能。在这个背景下研究生产许可行为，科学的认识生产许可在产品质量安全监管中的功能和作用,从理论上分析生产许可行为存在的问题及其原因，规范生产许可行为，探讨研究更加符合企业现状,更加符合现代政府管理理念，合法、合理、统一有效的更加科学的产品质量监管方式，对于质监系统转变管理职能，提高产品质量监管水平，更好的服务于经济发展具有重要的意义。
本文主要内容如下：
第1章，绪论。本章介绍了生产许可行为研究的背景和意义，研究的目的，国内外研究现状，研究的方法，研究的主要内容等。
第2章，生产许可行为理论界定。本章从行政行为概念展开研究生产许可行为，分析生产许可证制度的由来以及发展,从理论上阐述生产许可行为的概念与特征、内容与形式,介绍生产许可行为涉及的对象和范围，总结生产许可行为的功能。
第3章，从生产许可行为构成的核心要素生产许可行为的行政权力入手，分析生产许可行为产生的问题及其原因。
第4章，借鉴美国生产企业的备案制度给我国的启示，寻求生产许可行为的改革路径。运用信息化的手段,规范生产许可行为。
关键词：行政行为；生产许可行为；产品质量安全监管
Abstract
Since the Modern Production License System came into effect in 1984, it has significant influences on strengthening the quality management of corporation, improving the products’ quality, and especially on the supervising the safety of the products’ quality. However, with the gradually completing of our market economy, this system has being presenting some disadvantages. On the behavior of production license the disadvantages are that the production license rules foundation are not adequate accordingly the number of production license is over. Such as production license, license of production, erection, and maintenance on the special equipment, measuring instrument production license, etc. has decreasing the development of the market economy on a certain level. The insufficient search on the production license study caused one-sided emphasis on the effect that the production license has in the whole supervising on the product quality. For example, after series of food quality problems revealed, the government gave larger admission to food and relevant products. Thus the production license has become some administrative organs’ tool to highlight their work, which wastes some administrative resource. The one-sided production license behavior may leads to more stages and longer terms of producing, which increases the overall social costs. Measuring on the production license causes the qualifications of the license and the process is unclear, also causes the process is not standard. If the staff that process the license are selfish, the checking work might be unfair. Force the production license may make the responsibility of the license is not definite or the supervising is not complete. Problems like approving the important things first but underestimating minor things later, or valuing the charge of license but underestimating supervision and service, give excuses of power abuses and directly lead to corruption. These problems limit market, “the invisible hand”, works on the resources allocation and restrict the development of economy and society. Also they do no value to the administrative reform aim which is “accelerate the reform of administrative system, and establish service type government”. In this background, the research of production license behavior, recognizing the production license’s function on supervising product quality safety scientifically, analyzing the problems and the reasons theoretically, regulating production license behavior, discussing the ideas more benefiting the present situation of our companies and our government’s administration, and finding out legal and reasonable methods which can supervise product quality safety more scientifically and efficiently in a unified way, are important for the supervising organs to convert management function, for improving control on the production quality, and for the serving to the economy development better.
The thesis contains the following content:
Chapter one, introduction. This chapter introduces the background and the importance of the product license practice research, the current study aboard and domestic, research means, and the major content of this study.
Chapter two, definition of the production license behavior theory. This chapter develops the study of production license behavior from the definition, analyzes the history of the production license system, presents the definition, traits, content and forms of the production license behavior, introduces the objects and range of the license practice, and summarizes the functions.
Chapter three analyzes the problems of the production license behavior and the causes, on the basis of core elements of production license behavior and the administrative power of the production license behavior.
Chapter four studies the general practices of American, etc. supervising the product quality, in which recognizing the clue for our government and searching a path to reform the production license behavior. Using information means, the implementation of the electronic supervision for product quality and safety.
Key words: administrative conduct; production license behavior; product quality safety supervision
