European level food safety reform and the public health agenda

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1 European level food safety reform and the public health agenda Food, Risk and Regulation Joint Workshop CARR & BRASS, Cardiff University, 7-8 th October 2004 David Barling Centre for Food Policy, School of Allied Health Sciences City University 1

2 EU has a set of a separated food Agriculture policies Food safety (hygiene) Now address Food and public health (obesity) Lacks an integrated approach 2

3 Ask: Where are the Policy Boundaries? Why? How are they changing? What form have the EU level food safety reforms taken and why? Consider the EU s move from food safety into wider food and public health policy? Problem of diet related diseases now on the agenda of the Commission European Commission s July 2004 roundtable on obesity 3

4 More integrated approaches exist WHO European Region (51 member states): First Action Plan for Food & Nutrition Action Plan Lacking policy authority - left to member state action WHO Global Strategy on Diet, Physical Activity and Health (2004) 4

5 5 Food Safety Sustainable Food Supply Nutrition

6 EU Food Safety reforms - bounded Focus on food borne contamination and supply chain - v. important, but NOT diet and nutrition related non communicable diseases Avoided evidence for diet related concerns Reflect primarily a set of procedural ambitions by the European Commission in response to problem of BSE (initially) 6

7 Response to policy failure European Commission had to: Respond to policy failure over BSE (further food hygiene crises followed) European Parliament threatened censure Priority protection of consumer health European Commissioner Santer (1997) nothing short of a revolution in our way of looking at food and agriculture. 7

8 Risk Analysis model Re-validated committee structure around formal adoption of risk analysis model: Assessment Management Communication Based on excellence, independence & transparency 8

9 Procedural ambition - centralisation Sought to centralise EU based authority for risk assessment and risk management: 1. Risk assessment (Sci Cttes - EFSA) 2. Risk management - political institutions (esp DG SANCO) 3. Risk communication - not so clear 4. Enforcement - centralised via SANCO and Food & Veterinary Office (FVO) 9

10 Commission reform Creation of DG SANCO (Health and Consumer Protection) - took over food safety and standards policy-making from DG Agriculture and DG Industry 10

11 Procedural ambition - centralisation Management of the internal European market restore confidence of Europeans as consumers and as EU citizens Linked to legitimacy of the European integration project by Prodi Commission Part of revision of EU (White Paper) Governance 11

12 Procedural ambition Manage trade imperatives under WTO SPS agreements Provide central authority on risk assessment evolved into EFSA Quasi independent body: contingent & contested (e.g. administrative review clause in recent food legislation from Council of Ministers) 12

13 Formation of EF(S)A evolved Attempts at a body with explicit public health remit: 1999 paper by James, Kemper & Pascal - propose European Food and Health Authority 2000 (July-Dec) French Presidency of EU sought nutrition and diet related element (Council Resolution on Health & Nutrition) 13

14 Why didn t it happen? Commission procedural ambitions prioritised focus on food hygiene and supply chain E. Parliament (main rapporteur) added Safety to the title Active Industry lobbying (CIAA) 14

15 But- EFSA part of overall Food Law reform White paper on Food Safety 2000 (over 80 legislative initiatives spelt out) Regulation 178/2002 General Principles & Requirements of Food Law establishes responsibility along the food chain from producer onward: high level of protection of human health and consumers interest in relation to food... 15

16 EFSA s mission provide scientific advice and scientific and technical support for the Community s legislation and policy in all fields which have a direct or indirect impact on food and feed safety. It shall provide independent information and communicate on risks 16

17 EFSA s remit Along whole food chain and feed supply chains, scientific opinions are limited to food safety only Scientific advice on human nutrition in relation to Community legislation, and assistance on communication on nutritional issues within the Community s health programme, but only at the request of the Commission 17

18 EFSA s challenges risk assessment/risk management boundaries blurred (framing assumptions can be political) risk communication role shared (problematic) most member states have new/revised food agencies competing authoritative voices? 18

19 EFSA challenges Co ordination of national viewpoints and of the intergovernmental arena role of the Advisory Forum - will see an interplay between RA & RM (Transparency?). Role of management board (national carve - up and stakeholder rep) - independent of Commission 19

20 Food Law Principles Precautionary principle Whole food chain approach farm to fork Food producer bear prime responsibility Traceability 20

21 Supply chain approach Standing Committee on Food Chain and Animal Health (NCAs) - comitology New (Aug 2004) advisory group on the Food Chain and Animal and Plant Health - rationalise existing advisory groups to the Commission 21

22 Commissioner Byrne 3 pillar strategy to food safety (2002) 1. Effective range of food safety legislation 2. EFSA to identify risk and communicate with the public cornerstone 3. More effective approach to official enforcement controls e.g. Official Food and Feed Controls legislation COM 20(03) 52 22

23 EU has its own three columns of food 1. CAP policy but no roof! 2. Food safety (as hygiene) 3. Nutrition and Diet related public health (Obesity) Can it integrate? 23

24 CAP and public health Designed at time of under consumption Now counter productive in health terms: subsidising animal fats and reducing FFV production 24

25 Public health costs of CAP 4 production sectors impact directly on health (milk fats, wine, tobacco, fruit and veg. (destruction)): receive 5.6 bill euro subsidies est. health costs 3.4 billion euro (2001 figures) Schafer Elinder, L. (2003) 25

26 Food Quality as Food Safety Food quality dialogue (DGs Agric. & SANCO) Issues of food safety and consumer desire for food quality linked to CAP reform & multifunctional agric. (inc. traditional foods caveat) Concluded food safety as the bedrock of quality 26

27 EU s Public Health competencies Strengthened under Amsterdam Treaty Byrne (2003) list EU formal health competencies: 1. Support effective PH strategies 2. Provide EU wide data & analysis 3. Ensure EU wide food labelling has positive role 27

28 EU potential for policy action on nutrition, diet and health? Enabling good health for all = EU Health strategy paper (July 2004) Reflection process: Prevention Information mandatory nutritional labelling Disseminate national health promotion best practice 28

29 Policy action have got Evidence accumulation - Eurodiet (2001) New agency European Centre for Disease Prevention and Control - minimal nutrition role (like EFSA) = Policy gap for nutrition? Obesity round table 29

30 Potential for policy action? Stakeholders (at Obesity roundtable): NGO alliances EPHA & European Heart Network; increased focus for consumer groups Industry responses (CIAA, EuroCommerce)? Differentiated responses: winners and losers? Voluntary v regulatory approach 30

31 Potential for policy action? Regulation? E.g. Commission regulation of European market over tobacco advertising Can it address diet health & food messages? Intergovernmental and multilevel governance difficulties - getting action plans carried through (e.g Council Res. on Health & Nutrition) 31

32 Potential for policy action Crossing policy boundaries Food Law reform and food chain remit EFSA potential? Commission can request scientific advice and hope that it s authority is accepted 32

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