【背景】
我國是農業大國，農業用地多，農民數量多，對農藥的需求量較大。農藥使用關乎農民(min)利(li)益，更關乎食(shi)品安全。
農藥(yao)經(jing)銷商為了(le)增加銷量，存在(zai)向農民虛假宣傳(chuan)的(de)(de)不正(zheng)當行(xing)為，加之農民在(zai)使用農藥(yao)過(guo)程中相關專(zhuan)業知識的(de)(de)欠缺，經(jing)常發(fa)生(sheng)因農藥(yao)質量問題(ti)而引發(fa)的(de)(de)民事(shi)訴訟。
在農村針對一種農藥的使用具有“集中性(xing)”，一旦發生糾(jiu)紛，涉及人數較多(duo)，此(ci)類案件的群體性(xing)特(te)點使得一旦案件處理不當，極易引發群體效應。
為了(le)預(yu)防此類糾紛(fen)的發(fa)生，促(cu)進社(she)會(hui)和諧穩定(ding)，內蒙古自治(zhi)區高級人民法(fa)院結合(he)相關案件的審理情況，及時向自治(zhi)區農(nong)業主管(guan)部門發(fa)出司法(fa)建議(yi)，就規范和加(jia)強(qiang)對(dui)農(nong)藥的監管(guan)工作提(ti)出了(le)建議(yi)對(dui)策。
【建議】
內蒙古自治區(qu)高級(ji)人民法院司(si)法建議書
內(nei)高法(fa)建〔2014〕4號
自治區農牧業廳：
我院在審(shen)理一(yi)起農(nong)(nong)(nong)藥使(shi)用(yong)者起訴農(nong)(nong)(nong)藥生產商(shang)和農(nong)(nong)(nong)藥經銷(xiao)商(shang)的案件中(zhong)(zhong)，發(fa)現農(nong)(nong)(nong)藥經營(ying)者在銷(xiao)售農(nong)(nong)(nong)藥過程中(zhong)(zhong)、農(nong)(nong)(nong)藥使(shi)用(yong)者在使(shi)用(yong)農(nong)(nong)(nong)藥過程中(zhong)(zhong)均有不(bu)規范之(zhi)處，存在如下問題：
一、農(nong)(nong)藥生產(chan)(chan)商(shang)銷售的(de)農(nong)(nong)藥，中華(hua)人民(min)共和國農(nong)(nong)業部已(yi)頒發農(nong)(nong)藥登記證，核準了(le)使用(yong)(yong)范(fan)圍(wei)。農(nong)(nong)藥生產(chan)(chan)商(shang)擅自擴大農(nong)(nong)藥使用(yong)(yong)范(fan)圍(wei)，通過召(zhao)開產(chan)(chan)品推薦會等方式，向農(nong)(nong)藥經銷者虛假(jia)宣傳(chuan)可用(yong)(yong)于核準使用(yong)(yong)范(fan)圍(wei)之外(wai)的(de)農(nong)(nong)作物，為引發糾(jiu)紛埋下隱患。
二、農(nong)(nong)藥(yao)(yao)經銷商(shang)在銷售(shou)農(nong)(nong)藥(yao)(yao)過程中，未核(he)實(shi)農(nong)(nong)藥(yao)(yao)經農(nong)(nong)業部農(nong)(nong)藥(yao)(yao)登記證(zheng)核(he)準使用(yong)(yong)范圍，盲目聽信農(nong)(nong)藥(yao)(yao)生產商(shang)的(de)虛(xu)假宣傳，導致農(nong)(nong)藥(yao)(yao)使用(yong)(yong)者(zhe)購買使用(yong)(yong)該農(nong)(nong)藥(yao)(yao)用(yong)(yong)于核(he)準使用(yong)(yong)范圍之外(wai)的(de)農(nong)(nong)作物，造成農(nong)(nong)作物減產，蒙受了巨大(da)的(de)經濟損失。
三、農(nong)藥(yao)(yao)使(shi)用(yong)者缺乏農(nong)藥(yao)(yao)使(shi)用(yong)基本常識，未認真閱讀農(nong)藥(yao)(yao)說明書(shu)核準使(shi)用(yong)范圍，造成自身種植農(nong)作(zuo)物減產的(de)嚴重經濟損失(shi)。
農(nong)(nong)藥(yao)安全(quan)關(guan)乎農(nong)(nong)業發(fa)(fa)展，關(guan)乎民(min)生，涉及農(nong)(nong)民(min)財產權益(yi)。此類案件中發(fa)(fa)現的問(wen)題，如果不加以關(guan)注(zhu)，極易損害農(nong)(nong)業、農(nong)(nong)民(min)及大眾的切身利益(yi)。對上(shang)述問(wen)題需高度重視、審慎解(jie)決處理(li)。為(wei)此，我院(yuan)提(ti)出(chu)如下建議：
一、加強(qiang)對(dui)農(nong)藥(yao)宣傳(chuan)(chuan)的監管(guan)。《農(nong)藥(yao)管(guan)理條(tiao)例》第六條(tiao)規定，我國“實行農(nong)藥(yao)登(deng)記(ji)(ji)制度”，登(deng)記(ji)(ji)的內容包(bao)括農(nong)藥(yao)的使用(yong)(yong)范圍。應(ying)加強(qiang)監管(guan)，規范農(nong)藥(yao)經營者的宣傳(chuan)(chuan)行為，確保其嚴格按照登(deng)記(ji)(ji)使用(yong)(yong)范圍對(dui)農(nong)藥(yao)進(jin)行宣傳(chuan)(chuan)。
二(er)(er)、加(jia)強對農(nong)(nong)藥(yao)(yao)(yao)經(jing)營者(zhe)的(de)監(jian)管。《農(nong)(nong)藥(yao)(yao)(yao)管理條例》第(di)二(er)(er)十二(er)(er)條規定(ding)，“農(nong)(nong)藥(yao)(yao)(yao)經(jing)營單位銷售農(nong)(nong)藥(yao)(yao)(yao)，必(bi)須(xu)保(bao)證質量(liang)，農(nong)(nong)藥(yao)(yao)(yao)產(chan)品與產(chan)品標(biao)簽或者(zhe)說明書(shu)、產(chan)品質量(liang)合格證應當核對無誤(wu)”。農(nong)(nong)藥(yao)(yao)(yao)經(jing)營者(zhe)在進貨、銷售環節不履行核實農(nong)(nong)藥(yao)(yao)(yao)產(chan)品與產(chan)品標(biao)簽、說明書(shu)以及查詢農(nong)(nong)藥(yao)(yao)(yao)登記證的(de)法定(ding)義務。應加(jia)強指導，督促農(nong)(nong)藥(yao)(yao)(yao)經(jing)營者(zhe)履行上述法定(ding)義務。
三、加強(qiang)(qiang)對(dui)農(nong)(nong)(nong)藥(yao)(yao)使用(yong)(yong)(yong)者的指導(dao)。《農(nong)(nong)(nong)藥(yao)(yao)管理條例(li)》第二十五條規定(ding)，“縣(xian)級以(yi)上(shang)地(di)方各(ge)級人民政府農(nong)(nong)(nong)業(ye)行政主(zhu)管部門(men)應當加強(qiang)(qiang)對(dui)安全、合理使用(yong)(yong)(yong)農(nong)(nong)(nong)藥(yao)(yao)的指導(dao)”。農(nong)(nong)(nong)藥(yao)(yao)使用(yong)(yong)(yong)者存(cun)在著輕信對(dui)農(nong)(nong)(nong)藥(yao)(yao)經(jing)營者的虛(xu)假宣傳行為，應指導(dao)農(nong)(nong)(nong)藥(yao)(yao)使用(yong)(yong)(yong)者提高鑒別農(nong)(nong)(nong)藥(yao)(yao)真(zhen)偽及(ji)核實(shi)農(nong)(nong)(nong)藥(yao)(yao)經(jing)營者的宣傳資料是否(fou)與農(nong)(nong)(nong)藥(yao)(yao)使用(yong)(yong)(yong)說明書及(ji)農(nong)(nong)(nong)藥(yao)(yao)登記證使用(yong)(yong)(yong)范圍相一致的能力(li)。
以(yi)上建議(yi)請予以(yi)考慮，并及時將意見函告我院。
二○一四年八月三(san)十(shi)日
【效果】
自治區農(nong)牧(mu)業廳收到該司法(fa)建(jian)議后(hou)，高(gao)度重視，針(zhen)對(dui)司法(fa)建(jian)議反映的(de)(de)(de)問題及(ji)時組織相關單(dan)位進行了(le)(le)全(quan)面系統的(de)(de)(de)調研，提(ti)出規(gui)范農(nong)藥(yao)(yao)市場經營(ying)秩序(xu)的(de)(de)(de)具體措施，有效(xiao)促進了(le)(le)當地農(nong)藥(yao)(yao)經營(ying)市場進一(yi)步(bu)規(gui)范，推進農(nong)藥(yao)(yao)經營(ying)市場持續好(hao)轉，農(nong)藥(yao)(yao)經營(ying)人員守法(fa)意識(shi)逐步(bu)增(zeng)強(qiang)，進一(yi)步(bu)提(ti)高(gao)了(le)(le)農(nong)民(min)的(de)(de)(de)安全(quan)用藥(yao)(yao)意識(shi)及(ji)農(nong)藥(yao)(yao)安全(quan)使用水(shui)平，杜絕假劣農(nong)藥(yao)(yao)進入市場，保障農(nong)產(chan)品質量安全(quan)。
一是加大農(nong)(nong)(nong)藥(yao)市場的(de)檢(jian)查力度。以(yi)無證(zheng)經(jing)營、超范圍經(jing)營、不(bu)具備(bei)經(jing)營資質的(de)門(men)店、違法(fa)經(jing)營高毒農(nong)(nong)(nong)藥(yao)、禁限用農(nong)(nong)(nong)藥(yao)、“三證(zheng)”（農(nong)(nong)(nong)藥(yao)登(deng)(deng)記證(zheng)、農(nong)(nong)(nong)藥(yao)生產(chan)(chan)許可證(zheng)、產(chan)(chan)品(pin)(pin)標準(zhun)證(zheng)）不(bu)全(quan)、假(jia)冒偽(wei)造登(deng)(deng)記證(zheng)、登(deng)(deng)記證(zheng)過期及任意擴大使用范圍等不(bu)合(he)(he)格(ge)(ge)農(nong)(nong)(nong)藥(yao)產(chan)(chan)品(pin)(pin)查處(chu)為重點；嚴格(ge)(ge)查處(chu)、打擊在(zai)蔬菜(cai)等食品(pin)(pin)中(zhong)擅(shan)自違法(fa)添加其他禁、限用高毒農(nong)(nong)(nong)藥(yao)的(de)假(jia)劣產(chan)(chan)品(pin)(pin)，從源頭上保障農(nong)(nong)(nong)產(chan)(chan)品(pin)(pin)質量安全(quan)；嚴格(ge)(ge)查處(chu)不(bu)合(he)(he)格(ge)(ge)農(nong)(nong)(nong)藥(yao)品(pin)(pin)種，保護農(nong)(nong)(nong)民的(de)合(he)(he)法(fa)利益(yi)。2014年全(quan)自治區(qu)出動執法(fa)人員10106人次(ci)，檢(jian)查企業9035家，查處(chu)案件274件，查獲假(jia)冒偽(wei)劣農(nong)(nong)(nong)藥(yao)4061.7公(gong)斤，印(yin)發農(nong)(nong)(nong)藥(yao)使用宣傳手冊23萬份。
二(er)是加強對(dui)農(nong)(nong)藥(yao)(yao)(yao)(yao)經營者的管理。以農(nong)(nong)業生產(chan)和農(nong)(nong)產(chan)品質量安(an)全(quan)(quan)，維護農(nong)(nong)民利益為出(chu)發點，嚴格(ge)執行(xing)農(nong)(nong)藥(yao)(yao)(yao)(yao)經營許可證制度(du)和農(nong)(nong)藥(yao)(yao)(yao)(yao)經營人員資格(ge)考試制度(du)。對(dui)不符合(he)經營許可條(tiao)件的，吊銷經營許可證。促(cu)進(jin)了農(nong)(nong)藥(yao)(yao)(yao)(yao)經營市(shi)場進(jin)一(yi)步規(gui)范，推動農(nong)(nong)藥(yao)(yao)(yao)(yao)市(shi)場持續好轉，農(nong)(nong)民的安(an)全(quan)(quan)用(yong)藥(yao)(yao)(yao)(yao)意識(shi)和農(nong)(nong)藥(yao)(yao)(yao)(yao)安(an)全(quan)(quan)使用(yong)水平進(jin)一(yi)步提(ti)高，保障農(nong)(nong)產(chan)品質量安(an)全(quan)(quan)。
三是加強農(nong)藥安全(quan)使用(yong)(yong)(yong)指(zhi)導。重點加強對在蔬菜、水(shui)果等鮮食(shi)農(nong)作物上(shang)使用(yong)(yong)(yong)禁(jin)、限用(yong)(yong)(yong)農(nong)藥的檢(jian)查和(he)監管。在農(nong)忙時節，深(shen)入(ru)田間地頭，現場指(zhi)導農(nong)民安全(quan)合理用(yong)(yong)(yong)藥，確保農(nong)民安全(quan)使用(yong)(yong)(yong)農(nong)藥。
四是加強農(nong)藥(yao)使用(yong)(yong)宣傳培訓(xun)。利(li)用(yong)(yong)廣播、電視、報紙(zhi)等新聞媒體，舉(ju)辦培訓(xun)班、印發、張貼宣傳資料(liao)，發送手機短(duan)信(xin)等多種(zhong)(zhong)途徑(jing)，廣泛(fan)宣傳《農(nong)藥(yao)管理(li)條(tiao)例》《蔬菜、果(guo)樹等限制使用(yong)(yong)農(nong)藥(yao)品(pin)種(zhong)(zhong)》等有關規定。提高(gao)農(nong)藥(yao)經營者的(de)素質和(he)農(nong)藥(yao)使用(yong)(yong)者辨別農(nong)藥(yao)真偽和(he)安全使用(yong)(yong)農(nong)藥(yao)的(de)能(neng)力。
