食品是全世界各族人民赖以生存的根本，食品的卫生安全不仅仅与社会的平稳紧密相连，而且还牵涉到社会大众的人身安全，关系尤为重大。近来，我国餐饮业“后厨”食品安全事件频发，屡禁不止，引发一系列社会问题，将直接地影响到整个社会的全面性可持续发展与安定。但我国餐饮业“后厨”食品安全监管基层执行面临诸多困境，由于基层工作人员的政策执行又是我国食品安全监管尤为重要的环节，所以，只有认真切实解决好基层执行过程中所面临的问题，才能对整个食品安全治理环境有一个很好的促进作用。否则，再好、再接地气的政策，也只是一句空话。这对我国食品安全基层监管部门提出了更大的挑战、更高的要求。

首先，本文在仔细阅读大量文献的基础上，通过对“海底捞”后厨事件始末进行详细梳理，发现我国餐饮业“后厨”食品安全监管基层执行存在执行工具、执行主体、执行客体（目标群体）、执行环境等4个层面的困境，具体包括规制工具低效或无效，基层执行不到位（敷衍式执行）且部际协同“孤岛现象”（僵化），目标群体事后态度诚恳但食安事件却屡禁不止，行业环境“疲态”与消费环境“病态”。

然后，以实地访谈和问卷调查所得数据为支撑并结合相关公共管理理论（路径依赖理论、街头官僚理论、破窗理论等）对上述困境的形成原因进行分析，得出过多依赖行政性执行工具，执行人员负担过重且随意性强、信息共享不畅与部门本位主义盛行，目标群体主体责任与自律意识缺失，行业有失规范（“劣币当道”）与消费者食品安全意识“麻木”等成因。

最后，根据成因分析所得结果并结合餐饮业“后厨”监管特点，有针对性地提出自愿型与混合型政策工具并用（与餐饮行业协会合作、构建市场信誉机制、立法公民赋权），合理配备执行人员（平衡“人力”与“事权”）、规范执行人员行为（合理规范自由裁量权行使范围、加大不合规行为惩戒力度、加强伦理道德建设）、统一信息公示渠道及营造共生环境（加大各方监督力度、增进监管部门各成员间持续性信任、监管部门间开展有效的沟通），提高目标群体主体责任与自律意识（深入开展后厨食品安全培训、加强餐饮企业主体责任与担当意识、加快餐饮企业文化建设），构建和谐营生环境（培养“良币当道”行业氛围、提升消费者的食安大局意识）等优化对策。

Food is the foundation for survival of the world, and food safety not only has a close relation with social stability, but tightly connects to body safety of the social public as well, which is very important especially. For the time being, the “kitchen” food safety of catering industry shows up a frequent occurrence, with no any cease in spite of prohibition once again and again, which directly causes a series of social problems and influence social sustainable development and stability. However, the grass-roots execution on supervision of “kitchen” food safety of catering industry faces many a dilemma, and also owing to the top priority of the grass-root execution on China’s food safety supervision, therefore, only such problems encountered in the course of grass-roots execution are resolved practically, can a favorable and stimulative effect to the governance environment for the whole food safety be achieved. Otherwise, it is just meaningless words no matter how good and down-to-earth the policy is. This produces greater challenges and higher requirements for the grass-root supervision of food safety.

Firstly, based on careful reading of a large number of document literature, it is found through detailed understanding of the whole course of “Haidilao” kitchen event that the following four-layer dilemmas such as execution tools, subject, object and environment are existed in the grass-roots execution on supervision over “kitchen” food safety of catering industry, in detail, including inefficient or ineffective regulation tools, grass-roots execution gap (perfunctory execution) and inter-departmental “Cooperation Island”, sincere attitude but repeated emergence of food safety event, “weak” industry environment and “sick” consumption environment.

Secondly, supported by such data obtained from the field interview and questionnaire survey as well as combined with relevant public management theories (Path Dependence Theory, Street Bureaucracy Theory and Broken Window Theory), the causes for such dilemmas mentioned above are as follows: too much dependence over administrative execution tools, overload of executive staff,strong arbitrariness of executors, poor information sharing and prevailing departmental selfishness, the lack of entity responsibility and self-discipline consciousness, industry irregularities and “numbness” of consumer’s consciousness on food safety, etc.