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The author:(作者)aaapublished in(发表于) 2013/12/17 15:38:28 Experts say that tobacco control needs demand and powerful national legislation
Reporter Xi Feng Yu
Non-smoking billboards on the restaurant table, but a table of people still smoke, with the child's parents had to give up a meal.
Believe that journalists are not the only people who have had experience of the scene. Smoking signs are everywhere, everywhere you can smell the overpowering smell of cigarettes. Centers for disease control and prevention tobacco control Office of China Li Qiang, Dr, women, youth, are a major group of exposure to secondhand smoke in public places, there are about 100,000 people in China die each year from secondhand smoke causes disease, most of them women and children. Tobacco control is a consensus, how to effectively implement a tobacco control within the society you need more supported by policies and laws.
On December 11, the official Yang Jie of the China CDC tobacco control Office in a news conference revealed that the National Planning Commission, the Chinese Center for disease control and the development of smoke-free regulations in public places in the country, in strict accordance with the requirements of the framework Convention on tobacco control, public transport, indoor workplaces and indoor public places such as Internet cafes, restaurants all defined to require absolutely no smoking in public places. Tobacco control legislation at the national level has also been incorporated into the national people's Congress 2013 legislative work plan.
China signed the Convention on tobacco control is ten years
On May 21, 2003, the 56th World Health Assembly unanimously adopted the first Ministry of health of the United Nations multilateral, legally binding treaty, the framework Convention on tobacco control. On November 10, 2003 to sign the Convention. National People's Congress ratified the Convention in August 2005. In January 2006, the Convention's entry into force. This was seen as a milestone in China's tobacco control.
Vice President of the Beijing Academy of social sciences, Member of, Professor, researcher Xu Chuanxi, a United States social and cultural anthropology, Yale University, Harvard Law School. When in an interview with the legal daily reporter, Xu Chuanxi detail was introduced, as well as the purpose of the Convention and our relationship.
Xu Chuanxi said, introduction of the purposes of the Convention, primarily consists of "protect present and future generations from tobacco consumption and exposure to tobacco smoke to cause devastating health, social, environmental and economic impact". Epidemiological evidence shows that tobacco consumption and exposure to tobacco has direct relevance for some diseases, particularly to children, to pregnant women will have an adverse impact on health and development. China acceded to the Convention for tobacco control that my Government has a strong determination and courage, as well as related to environment, health, trade and other areas of our law amended and improved the proposed a new specific requirements. Determined by the Convention "General obligations" and "appropriate measures" that can provide basis for the relevant domestic law and references. "Today, the globalization of trade, simple internal tobacco control will only result in one country, including smuggling of illicit tobacco trade rows. "Xu Chuanxi told reporters.
Meanwhile, the Convention establishes a general obligation of the parties and the corresponding measures. Convention did not establish clear assessment on a regular basis, but stipulates that "Parties shall be submitted to the COP, through the Secretariat, on a regular basis status report on implementation of this Convention", and provides for the specific contents of the report.
In accordance with the relevant requirements of a Convention, commitments taken prior to January 9, 2011 in indoor public places and indoor workplaces active and effective policies to prevent citizens ' exposure to tobacco smoke, and comprehensive ban of all tobacco advertising, promotion and sponsorship. To date, our country has seven years of the entry into force of the Convention, but that promise has not materialized.
When asked about this "word" assume responsibility in our country, said Xu Chuanxi, "promise" does not have a clear and direct legal obligations, but also create related effects. For example, national health and sanitation, adverse effects have not been effectively controlled by tobacco, the Government will come under pressure of public opinion in the country. As a party, the Chinese Government has failed to take effective measures to control tobacco and tobacco trade, will come under pressure of the State party's political and diplomatic pressure, can also affect the tobacco trade, economic cooperation.
Call for national legislation had reached a consensus
On December 5, the Guangdong provincial people's Congress held the legislative work Conference, announced this session of the national people's Congress legislative plan of the five-year term, the making of the smoke control Ordinance included in Guangdong Province.
Before that, the Guangzhou smoking control regulation has started on September 1, 2010. Harbin, Qingdao, Lanzhou, Shenzhen and other cities have been developed or introduced the tobacco control regulations.
Although legislation had been testing the water for years, national legislation is still missing. Talk about tobacco control difficulties facing the lack of legislation at national level, said Xu Chuanxi, first legal mandate is not clear. All levels of Government, departments, enterprises, social groups, public in tobacco control in the respective rights and obligations, lack of code for specific guidelines. Secondly, the lack of basis in law enforcement and law enforcement procedures, lack of law enforcement law enforcement of specific legal norms, lack of due process guidelines. Again, the related subject did not fulfill their legal obligations, their legal obligations to very specific implementation that there is absence of liability. Finally, although a number of local regulations, but the lack of national legislation, may result in insufficient legislative authority, thus affecting the legal obligation to fulfill.
In recent years, throughout the country during the NPC deputies and CPPCC members have time and again proposed national tobacco control. Investigations revealed that over 90% people in support of national legislation. Xu Chuanxi believes that tobacco control legislation at the national level should focus on the provisions in the following areas: first, clear responsibilities and authorities of the relevant functional departments; the other is introduced for public places "classification management" for key areas, sensitive area, forbid the designation of smoking areas. For the general public, licensed small no smoking areas can be established three source control of tobacco production and marketing, and regulation of the whole process, and the encouragement of alternative, economic incentives, dissuasive measures to prevent rigid law enforcement; five to strengthen public education, communication, training, and raising the public's awareness of the hazards of tobacco products.
Implementation and powerful law
Local tobacco control unit and individual liability provisions in the legislation, much of it in form of administrative punishment of fine. However, after the enactment of legislation in many places didn't get a ticket, tobacco control in a city Ordinance introduced 3 years, out of the 19 tickets only. For tobacco control, and compliance is not the end, relevant provisions in the law to the letter. There is no effective implementation of tobacco control or "fancies", "illusion".
Xu Chuanxi believes that after the introduction of national tobacco control legislation, also faces a number of law enforcement difficulties. For example, based on sufficient law enforcement and limited law enforcement resources, a comprehensive law enforcement difficult, an inevitable phenomenon of selective enforcement, there could be movement or formal law enforcement.
To solve the problem of hard-to-carry, Xu Chuanxi believes that we must first clear legal obligations and liabilities, these provisions should not be too simple and rigid, at the beginning of the implementation of tobacco control, legal obligation and legal responsibility should focus on the production and sale of tobacco products. Secondly, encourage the adoption of flexible regulatory concepts and measures avoiding formal and rigid enforcement. In addition, improving public education, communication, training, and encouraging public participation in tobacco control. In addition, the social forces involved in tobacco control should also be encouraged. Especially encourages enterprises, institutions, environmental groups, and measures to reduce reliance on tobacco products, in the form.
In addition, Xu Chuanxi believes that tobacco control work, should also be strengthened and the functions of the Government departments in the production and sales of tobacco products regulatory liability for links. "If the regulation of the contents of tobacco products, tobacco product constituents and emissions disclosure, provisions of the packaging and labeling of tobacco products that specializes in licensing requirements, provisions of the absolute prohibition of sales to minors. If the Government and the relevant departments failing to comply with these aspects of regulatory obligations, would have to take strict legal liability. "Xu Chuanxi said.
(Original title: national legislation on tobacco control need more powerful execution)
本报记者席锋宇
禁止吸烟的宣传牌赫然立在饭店的桌面上，但是一桌人依然在吞云吐雾，带着孩子的父母不得不放弃在这里用餐。
相信这个场景并不是只有记者一人有过的经历。到处可见禁烟标志，却到处可以闻到呛人的烟味。中国疾病预防控制中心控烟办李强博士介绍，女性、青少年等是公共场所二手烟暴露的主要群体，每年中国有大约10万人死于二手烟导致的疾病，其中大部分是妇女和儿童。控烟是共识，如何有效实现全社会范围内的控烟则需要更多的政策和法律做支撑。
12月11日，中国疾控中心控烟办相关负责人杨杰在一场新闻发布会上透露，国家卫计委、中国疾控中心拟订中的全国公共场所无烟法规，严格按照《烟草控制框架公约》要求，将公共交通工具、室内工作场所以及网吧、餐厅等室内公共场所全部定义为需要百分百禁烟的公共场所。而国家层面的控烟立法也已纳入全国人大常委会2013年立法工作计划。
我国签署控烟公约已经十年
2003年5月21日，第56届世界卫生大会一致通过了具有法律约束力的联合国第一部卫生多边条约《烟草控制框架公约》。我国于2003年11月10日正式签署公约。全国人大常委会于2005年8月批准了公约。2006年1月，公约生效。这被看作中国烟草控制的一个里程碑。
北京市社会科学院党组成员、副院长、研究员许传玺教授是美国耶鲁大学社会文化人类学博士，哈佛大学法学院博士。在接受《法制日报》记者采访时，许传玺详细谈及了公约出台的目的以及与我国的关系。
许传玺说，出台公约的目的，主要是在于“保护当代和后代免受烟草消费和接触烟草烟雾对健康、社会、环境和经济造成的破坏性影响”。已有流行病学证据表明，烟草消费和接触烟草对于某些疾病的发生具有直接关联性，特别是对儿童健康和发育、对孕妇都会产生不良影响。我国加入公约表明我国政府对于烟草控制具有强大的决心和勇气，同时也为我国国内涉及环境、卫生、贸易等领域相关法律的修改和完善提出了新的具体的要求。公约所确定的“一般义务”和“相应措施”，能够为国内相关法律的完善提供依据和参考。“在贸易全球化的今天，单纯在一国内部展开烟草控制只会造成包括走私在内的非法烟草贸易横行。”许传玺告诉记者。
同时，公约也规定了缔约方的一般义务和相应措施。公约虽未规定明确的定期考核，但规定“各缔约方应定期通过秘书处向缔约方会议提交实施本公约的情况报告”，并对报告的具体内容作出了规定。
我国按照公约的相关要求，承诺在2011年1月9日前采取积极有效政策在室内公共场所、室内工作场所防止公民接触烟草烟雾，并广泛禁止所有烟草广告、促销和赞助。至今，公约在我国已经生效七年，但这一承诺并没有兑现。
当被问及面对这种“食言”我国需承担什么责任时，许传玺说，“食言”不会产生明确的直接的法律责任，但也会造成相关影响。比如，本国国民的身心健康和环境卫生等受烟草不利影响未得到有效控制，政府会面临国内的舆论压力。作为缔约方，中国政府未采取切实有效的措施控制烟草制品和烟草交易，会面临其他缔约国的政治压力和外交压力，也会影响包括烟草贸易在内的经济合作。
呼吁国家层面立法已达共识
12月5日，广东省人大常委会召开立法工作会议，公布了本届人大常委会五年任期内的立法规划，制定《广东省控制吸烟条例》列入其中。
而在此之前，2010年9月1日《广州市控制吸烟条例》已经开始实施。哈尔滨、青岛、兰州、深圳等多个城市已相继制定或出台控烟法规。
虽然地方立法已经试水多年，国家层面的立法却依然缺失。谈及控烟欠缺国家层面立法面临的困境时，许传玺说，首先是法律任务不明确。各级政府、职能部门、相关企业、社会团体、公众在控烟中各自的权利义务何在，欠缺明确具体的规范指引。其次，执法依据和执法程序欠缺，执法部门执法欠缺明确具体的法律规范，亦欠缺正当程序的指引。再有，相关主体未履行法律义务时，其法律责任的承担难以具体落实，即存在法律责任的缺位。最后，尽管有不少地方性法规，但国家立法的欠缺，可能造成地方立法权威性不足，从而影响法律义务的履行。
近几年来，在全国两会期间有不少人大代表和政协委员都多次建议国家立法控烟。调查显示，90%以上的民众也支持国家立法。许传玺认为，国家层面的控烟立法中应重点规定以下几方面的内容：一是明确相关职能部门的职责和权限；二是对于公共场所实行“分类管理”，对于重点区域、敏感区域，绝对禁止设立吸烟区。对于一般公共场所，经许可可以设立少量禁烟区；三是对烟草生产和销售实行源头控制和全过程监管；四是鼓励采取替代性的、经济性的激励、劝诫措施，防止执法僵化；五是加强对社会公众的教育、交流、培训，提升公众对烟草制品危害的认识。
有法可依更要实现执行有力
我国地方控烟立法中关于单位和个人法律责任的规定，多数是以罚款的行政处罚方式出现。但是，很多地方在立法后并没有开出过一张罚单，某市控制吸烟条例出台3年，仅开出19张罚单。对于控烟工作而言，有法可依并不是终点，如何将法律规定的相关条文落到实处才是根本。没有行之有效的执行，控烟工作还是“望梅止渴”、“画饼充饥”。
许传玺认为，全国性控烟立法出台后，也会面临着一些执法困境。比如，基于执法力量不足和执法资源有限，全面执法难以实现，由此必然出现选择性执法的现象，还有可能出现运动式执法或形式化执法。
要想解决执行难的问题，许传玺认为首先要明确法律义务和法律责任，这些规定不宜过于简单和僵化，在推行控烟的初期，法律义务和法律责任的重点应放在烟草制品生产和销售环节。其次，鼓励采取柔性的监管理念和措施，避免执法的形式化和僵化。另外，应该加强对于社会公众的教育、交流、培训，鼓励烟草控制中的公众参与。此外，还应鼓励社会力量参与控烟。特别是鼓励相关企事业单位、环保团体等，采取多种形式减少青少年对于烟草制品的依赖。
此外，许传玺认为要将控烟工作做好，还应当强化政府和职能部门在烟草制品生产销售管制环节的法律责任。“如烟草制品的成分管制、烟草制品成分和释放物的信息披露，烟草制品的包装和标签的相关规定，专卖许可规定，绝对禁止向未成年销售的规定等。如果政府和相关职能部门未依法履行上述环节的监管义务，就要承担严格的法律责任。”许传玺说。
(原标题：控烟需国家立法更需执行有力)
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