White Paper on food safety

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1) OBJECTIVE
To outline a comprehensive range of actions needed to complement and modernise
existing EU food legislation, to make it more coherent, understandable and flexible, to
promote better enforcement of that legislation, and to provide greater transparency to
consumers; in addition, to guarantee a high level of food safety.
2) COMM!IT" MEA#$E#
White paper on food safety of 12 Jan%ary 2&&& 'COM())(&*1) fina+ , !ot
p%-+ished in the Officia+ Jo%rna+./
0) CO!TE!T#
A series of crises concerning human food and animal feed (!E, dioxin etc." has exposed
#eaknesses in the design and application of food legislation #ithin the EU. This has led
the $ommission to include the promotion of a high level of food safety among its policy
priorities over the next fe# years. As #as stressed at the %elsinki European $ouncil in
&ecember '(((, particular attention must be focused on improving )uality standards and
reinforcing systems of checks throughout the food chain, from farm to table.
The *hite +aper on food safety is an important element in this strategy. The $ommission
is proposing a number of measures #hich #ill enable food safety to be organised in a
more coordinated and integrated manner; these include,
the establishment of an independent European -ood Authority #ith responsibility
for independent scientific advice on all aspects relating to food safety, operation of rapid
alert systems and communication of risks;
an improved legislative frame#ork covering all aspects of food products .from
farm to table.;
greater harmonisation of national control systems;
dialogue #ith consumers and other stakeholders.
efore looking in more detail at these four areas, the $ommission sets out the general
principles on #hich European food safety policy should be based,
a comprehensive, integrated approach throughout the food chain;
a clear definition of the roles of all stakeholders in the food chain (feed
manufacturers, farmers and food operators, the /ember !tates, the $ommission,
consumers";
tracability of feed and food and their ingredients;
a coherent, effective and dynamic food policy;
risk analysis (comprising risk assessment, management and communication";
scientific advice to the highest standards of independence, excellence and
transparency;
application of the precautionary principle in risk management.
E%ropean 1ood A%thority
0n the process of risk analysis, the gathering, analysis and communication of information
are particularly important for the identification of potential food and feed ha1ards.
0mprovements should therefore be made in the fields of follo#2up and monitoring, the
rapid alert system, research into food safety, scientific cooperation and analytical
support, and it must be ensured that information is )uickly and easily accessible to
consumers.
To this end, the $ommission envisages the establishment of an independent European
-ood Authority #ith responsibility for scientific risk assessment and communication in
close collaboration #ith national scientific agencies and institutions. The Authority should
become the scientific point of reference for the entire EU in the field of food safety.
The Authority #ill provide scientific advice, gather and analyse the necessary information
and react to crises #hile demonstrating the highest level of independence, scientific
excellence and transparency.
Unlike risk assessment and communication, the third element of risk analysis, namely
risk management, re)uires legislative action and thus political decisions based not only
on scientific considerations but also on a #ider appreciation of the #ishes and needs of
society. 0t also re)uires monitoring of /ember !tates3 implementation of legislation; this
function is currently carried out by the $ommission in its capacity as guardian of the
Treaties.
The transfer of such po#ers of legislation and control to the -ood Authority #ould lead to
an un#arranted dilution of democratic accountability. The risk management function
should therefore continue to be exercised by the European institutions rather than the
-ood Authority.
!e2 +e3a+ fra4e2or5
Although a broad body of legislation already exists covering both primary production of
agricultural products and industrial production of processed food, there is considerable
disparity in the means to respond to situations in specific sectors. Another #eakness in
the system is the lack of a clear commitment from all interested parties to give early
#arning about a potential risk, #hich means that the EU response to food crises is
reactive rather than pro2active.
The $ommission intends to rectify this situation by proposing a coherent and transparent
set of food safety rules. These rules #ill aim to lay do#n the common principles
underlying food legislation, establish food safety as the primary ob4ective of food la#, and
provide the general frame#ork for those areas not covered by specific harmonised rules.
The ne# proposed legal frame#ork #ill be concerned #ith the various aspects of the food
chain,
animal feed,
use of specific feed materials and products; evaluation, authorisation and labelling of
feed; accreditation of feed production plants and control measures; establishment of a
rapid alert system;
animal health and #elfare,
reinforcement of measures to tackle 1oonoses, !E and other transmissible spongiform
encephalopathies, integration of animal #elfare into food policy;
food hygiene,
recasting of existing legal re)uirements in order to ensure consistency and clarity
throughout the food production chain;
limits on contaminants and residues of pesticides and veterinary medicines in
food;
additives, flavourings, packaging and irradiation of foodstuffs;
possible safeguard measures in emergencies;
the decision2making process in relation to food (#hich should be streamlined and
simplified to ensure rapidity and transparency".
Contro+s
The $ommission envisages a complete recast of the different control re)uirements in
order to ensure that all links in the food production chain are covered by effective
controls.
Although primary responsibility for compliance #ith legislative provisions lies #ith
economic operators, national authorities have the task of ensuring that food safety
standards are respected by operators.
Audits and inspections undertaken by the $ommission in collaboration #ith the -ood and
5eterinary 6ffice (-56" have highlighted deficiencies in national systems of control.
The $ommission considers that a harmonised $ommunity approach to the design of
control systems #ould make for more consistent and better2)uality controls. 0t therefore
proposes a $ommunity frame#ork of national control systems comprising three core
elements, definition of operational criteria set up at $ommunity level; development of
$ommunity control guidelines; and enhanced administrative cooperation in the design
and operation of control systems.
The $ommission is also considering #hether it needs to be given additional po#ers, in
support of existing infringement procedures, in cases #here controls reveal significant
non2compliance #ith $ommunity rules.
Cons%4er infor4ation
7isk communication should be interactive and involve a dialogue #ith and feedback from
all stakeholders. Each phase of the decision2making process should be completely
transparent.
$onsumer concerns should be taken into account by
consulting the public on all aspects of food safety;
providing a frame#ork for discussions bet#een scientific experts and consumers;
facilitating transnational consumer dialogue at European and global level.
The $ommission advocates a more pro2active approach as regards the communication of
unavoidable risks for the most vulnerable groups (pregnant #omen, infants, the elderly,
immunodeficient people, etc.".
inding labelling rules should enable consumers to make fully informed choices about the
food they eat.
0n addition to the codification of the labelling &irective, the $ommission #ould like to see
the obligation to indicate components of foodstuffs extended to include all ingredients
(and not merely those making up at least 89: of the final product".
The $ommission #ill also look at the possibility of introducing specific provisions into
$ommunity la# to govern .functional claims. (relating, for example, to the beneficial
effects of a nutrient on certain normal bodily functions" and .nutritional claims. (#hich
describe, for example, the presence, absence or level of a nutrient or its value compared
#ith similar foodstuffs", as #ell as provisions offering appropriate means of redress.
The information provided to consumers should not be restricted to the biological,
chemical and physical composition of the food they eat. The $ommission #ill submit
proposals laying do#n criteria governing dietetic foods, food supplements and fortified
foods.
Internationa+ di4ension
0mported foodstuffs and animal feed should meet health re)uirements at least e)uivalent
to those set by the $ommunity for its o#n production.
$onversely, products exported from the $ommunity should meet safety standards at
least e)uivalent to those applying to products sold #ithin the $ommunity.
The $ommunity should continue its efforts #ithin the *orld Trade 6rganisation (*T6" to
set up international rules enabling member countries to maintain high standards of public
health in relation to food safety.
The $ommission #ill also look at the possibility of entering into ne# bilateral agreements
#ith non2$ommunity countries on recognition of the e)uivalence of sanitary measures. 0t
is also in favour of continuing the negotiations #ith neighbouring countries (;or#ay,
!#it1erland, Andorra" and stresses ho# important it is that the applicant !tates take on
the $ommunity acquis in this area.
Action p+an
An Action +lan on food safety provided in the annex to the *hite +aper lists the <=
legislative proposals #hich should be adopted before the end of 8>>8 in order to
implement the actions set out, and also contains a timetable for this.
6) 7EA78I!E 1O$ IMP8EME!TATIO! O1 T9E 8E:I#8ATIO! I! T9E
MEMBE$ #TATE#
;ot applicable
;) 7ATE O1 E!T$" I!TO 1O$CE <if different fro4 the a-ove)
;ot applicable
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