Food safety & quality and Trade in RSA –
Paving pathways for increased Market
Access and competitiveness
Prepared and presented by:
Directorate Food Safety and Quality Assurance
Chief Directorate Food and Veterinary Services
Programme: Food Safety and Biosecurity
TRADE AWARENESS WORKSHOP
BOLIVIA LODGE, 12 – 13 AUGUST 2009
Private Bag X343
Pretoria, 0001
Tel: 012 – 319 6000
www.daff.gov.za
Web:
CONTENTS
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1. Introduction
• Background – where does trade in agricultural
food come from?
• Why an increased need for regulatory
interventions in trade with food? What are risk
factors associated with trade in food?
2. Food safety: International and Regional
perspectives
3. National food safety regulatory framework
• How is the current food safety system in RSA?
• Who is involved? And what their roles are?
4. What are the implications of all these measures? Up
and down side.
5. Conclusion: Route to go
• Strengthen biosecurity measures
• Improve food control system
• Adopting a farm-to-fork approach measures
INTRODUCTION
Background – Where does trade in agricultural food
comes from?
• Trade in food dates back to time immemorable
• Battering was a traditional way of trade
• Trade evolved over years and is now centred
around monetary value of a product
• Trade only implied profit making at all costs
• Modern trade, however involves more than just
monetary value of the product, includes
product quality, suitability, safety, quantity,
accessibility, labeling, packaging, etc.
• Early attempts to regulate trade in food focused
primarily at combating adulteration, fraud and
illegal trade, hence there was minimal
regulatory interventions in food trade
• The dawn of the twenty first century witnessed
global upsurge of regulatory measures
pertaining to trade in food
INTRODUCTION (Cont..)
• Several factors contributed to this unprecedented
proliferation of regulatory measures:
o Increase in food trade as a result of
globalization and liberalization
o An increased in a number of food-borne
diseases and risks associated with trade in
food – concerns for public health, environment
and animal health
o Increased consumer awareness and the need
for consumer protection – consumers demand
food that is safe, nutritious, of high quality
standard and wholesome
o Impact of climate change on food safety
o Correlation between food safety, food
security, HIV/Aids and other issues of public
health concerns
o Harmonization of food standards to facilitate
trade, regionally and internationally
o most recently the threat of bioterrorism
• Hence food is today one of the most regulated
FOOD SAFETY: INTERNATIONAL
& REGIONAL PERSPECTIVES
• Food safety & quality have become increasingly issues of
serious international, regional and national concern over the
past decade
• Food safety and quality are trade requirements
• Food safety is on top of the agenda of WHO, probably only
surpassed now by H1N1 (Swine flu) and HIV/Aids
• In terms of international trade, food safety and food quality
are requirements dealt with under two separate WTO
Agreements, to which RSA is a signatory namely:
o WTO – SPS (Sanitary and phytosanitary measures),
covering food safety, plant health, animal health
including some environmental issues)
o WTO – TBT (technical standards or commercial
requirements for product quality)
• World Trade Organization – has 153 member countries.
Facilitate trade negotiations and provide for dispute
resolution mechanisms on trade issues.
FOOD SAFETY: INTERNATIONAL & REGIONAL
PERSPECTIVES (Cont..)
• South Africa became a member of a number of international
standard-setting bodies and signatory to a number of
conventions since 1994, which include among others:
o Member of the Joint FAO/WHO sponsored Codex
Alimentarius Commission – created in 1963 and currently
having 182 member countries. Develop food standards,
guidelines and related texts such as code of good practice.
o IPPC – International Plant Protection Convention (dealing
with plant health and related matters)
o OIE – World Organization for animal health.
Intergovernmental organization responsible for improving
animal health worldwide to ensure safety of animal products.
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o OIV – International wine office
o WWTG – world wine trade group (free association),
consisting of number of countries which include RSA,
USA, Canada, Australia, etc.
FOOD SAFETY: INTERNATIONAL &
REGIONAL PERSPECTIVES (Cont..)
• African countries have had it difficult proving that the
products they export meet international SPS standards or
are equivalent to their developed-country trading partners
• NEPAD prerogatives on food safety agreed to at a
Regional Conference on food safety held in Harare in
2006, concluded on:
o Inclusion of food safety in developmental policies and
provide legal framework for food safety
o Strengthening of national and regional analytical
capacity
oStrengthen
food-borne
disease
surveillance
programmes
o Strengthen multi-sectoral food safety inspections from
farm- to-fork
oImprove consumer awareness and participation in
food safety activities
• The African Union Inter-African Bureau for Animal
Resources (AU/IBAR) – initiative to address the need for
more effective participation of African Countries in
FOOD SAFETY: INTERNATIONAL &
REGIONAL PERSPECTIVES (Cont..)
• Most SADC member states are unable to meet the rising
level of SPS measures couple with the proliferation of
private standards in terms of costs
• Most of them also lack participation in the activities of SPS
standard setting bodies such as OIE, IPPC and Codex
• SADC Coordination Committee on SPS/TBT – facilitate
smooth trade among member-states and with trading
partners globally
• SADC-EU Economic Partnership Agreement (EPA)
• SADC (SQAM) – Standardization, Quality Assurance,
Accreditation and Metrology – assist to deal with the
facilitation of implementation of SADC Trade Protocol with
regard to standardization, technical regulations and
conformity assessment issues
• Including the ongoing SADC Food safety – Capacity
Building on Residue Control Project, which aims to assist
member-states to comply to SPS in terms of MRL
standards
NATIONAL FOOD SAFETY REGULATORY
FRAMEWORK
• The fragmented nature of South African food
control system, as is the case in many other
African countries is well documented
• Legislation relating to food control - food safety,
quality, hygiene and nutrition including plant
protection and animal and plant health in South
Africa is administered mainly by the Departments
of Health, Trade and Industry and Agriculture, with
certain functions delegated to Provinces
• There are also other state-sponsored regulators
such as SABS, CSIR and SANAS whose
responsibilities contribute substantially to ensure
food trade requirements are met and
• Assignees of the Department of Agriculture,
Forestry & Fisheries – PPECB, Prokon and Samic
• There are also private sector or industry
initiatives to ensure food safety such as Food
Safety Initiative (FSI)
NATIONAL FOOD SAFETY REGULATORY
FRAMEWORK (Cont..)
Legislation and mandates of various departments:
Department of Agriculture, Fisheries and Forestry
Administers several pieces of legislation through
various Directorates within the Department,
o Agricultural Product Standards Act, (No. 119 of
1990) – provides for control over sale and
production for sale of specific product standards for
export, import and local markets (Food Safety and
Quality Assurance)
o The Liquor Products Act, (No. 60 of 1989) –
provides for control over the sale and production for
sale of certain liquor products, mainly wine and
spirits above the alcohol level of 1% excluding
medicines (Food Safety & Quality Assurance)
NATIONAL FOOD SAFETY REGULATORY FRAMEWORK
(Cont..)
o The Meat Safety Act, (No. 40 of 2000) – make provision for
maintenance of proper standards of hygiene in the slaughtering
of animals for the purpose of obtaining suitable meat for human
and animal consumption and in the handling, keeping and
conveyance of such meat and animal products at and from
abattoirs. (Veterinary Services)
o The Fertilizers, Farm Feeds, Agricultural Remedies and
Stock Remedies Act, (No. 36 of 1947) – regulate the
registration of agricultural production inputs, which include crop
protection agents, veterinary medicines, farm feeds, fertilizers,
pest control operators, etc. (Directorate Food Safety & Quality
Ass.)
o Animal Diseases Act, (No. 35 of 1984) – provide measures
for control of animal products, including meat, milk, eggs and
their products from an animal disease point of view (Veterinary
Services)
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NATIONAL FOOD SAFETY REGULATORY
FRAMEWORK (Cont..)
o Agricultural Pest Act (No. 36 of 1983) – regulate imports and
matters which may affect plant health in relation to agro/forest
industries. The inspection, especially with regard to imported food
of plant origin, are vital to prevent entry of exotic pests and
diseases. (Plant Health)
o Plant Breeders’ Rights Act, (No. 15 of 1976); Plant
Improvement Act, (No. 53 of 1976); Genetically Modified
Organisms Act, (No. 15 of 1997) – regulate certain agricultural
food products, making provision for seed and propagation
materials certification and provisions for the release of genetically
engineered products to the environment. (Plant Production,
Genetic Resources and Biosafety). The regulations promulgated in
terms of these pieces of legislation all include or have influence in
or on certain food as defined.
NATIONAL FOOD SAFETY REGULATORY FRAMEWORK
(Cont..)
The Department of Health (DoH)
• The Department is responsible for Food Safety and food labelling
matters at the National level while compliance and monitoring is done
by the Provincial and Local authorities.
• The National department is responsible for the overall co-ordination,
determination of norms and standards, international liaison and cooperation and provision of support to the provinces and local
authorities.
• Through the Directorate of Food Control, the department is
responsible for many matters related to Food control which include:
o The preparation and administration of food legislation, regulations
and policies in line with international standards.
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o The evaluation of animal drugs and agricultural remedies for
safety to both the animals and the humans who subsequently eat
these animal
o Determination of Maximum Residue Levels (MRLs).
NATIONAL FOOD SAFETY REGULATORY FRAMEWORK
(Cont..)
• The Department is responsible for the administration and enforcement of the
following legislation:
o The Foodstuffs, Cosmetics and Disinfectants Act 1972 (Act 54 of
1972) - which governs the manufacture, sale and importation of all
foodstuffs from a public health point of view. This is the responsibility of
the Directorate of Food Control.
o The Health Act of 1977 (Act 63 of 1977). The Act provides for the
provisions governing the hygiene of food premises including milking
sheds and the transportation of food.
o The International Health Regulations Act 1974 - which govern the
approval of food premises that are used to produce food that is
consumed at airports, ports, vessels and aircraft. Approval of these
premises is carried out by Provincial health authorities on behalf on
National government.
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o The Medicines and Related Substances Act, of 1965 (Act 101 of
1965) - which makes provision for the registration of veterinary drugs.
Food stuffs and food supplements with a medicinal effects are also
administered by the Department of Health.
NATIONAL FOOD SAFETY REGULATORY FRAMEWORK
(Cont..)
Local Authorities/ Municipalities are responsible for:
• Local authorities are mandated individually by the Minister of Health
through the Foodstuffs, Cosmetics and Disinfectants Act, 1972 (Act 54
of 1972) and the relevant regulations.
• The Health Act of 1978 (Act 63 of 1978) defines the responsibility of
local authorities with regard to Food safety and Hygiene control.
Various food hygiene regulations have been published under the Health
Act.
• These empowers municipalities to carry out certain functions which
include:
o Investigating food borne ailments.
o Taking corrective action in the event of complaints related to food
safety.
o Enforcement of regulations.
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NATIONAL FOOD SAFETY REGULATORY FRAMEWORK
(Cont..)
o The control of foodstuffs entering or offered for sale within their
areas of jurisdiction
o The provision of advice to new entrepreneurs
o The inspection and sampling of all foods including milk and other
perishable foods as well as the inspection of the premises from
which these are produced or sold.
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NATIONAL FOOD SAFETY REGULATORY FRAMEWORK
(Cont..)
The Department of Trade and Industry (dti)
• On behalf of the Department of Trade and Industry, the SABS is authorized
to carry out mandate of food trade.
• The South African Bureau of Standards (SABS) also has a food safety
control mandate.
• The SABS handles food safety issues related to canned meat containing
more than 10% meat, frozen and canned fish and fishery products through
the Standards Act, 1993 (Act 29 of 1993). The SABS is therefore
responsible for ensuring that such fish products conform to the compulsory
specifications and is the appointed authority for certifying all fish exports to
the EU and Australia.
• The SABS is also responsible for administering the Trade Metrology Act,
1973 (Act 77 of 1973) and the Trade Marks Act,1963(Act 62 of 1963) both
of which relate to the labeling of food.
17
NATIONAL FOOD SAFETY REGULATORY FRAMEWORK
(Cont..)
• Although the SABS is responsible for regulating the canning of meat, if the
can of meat contains less than 10% meat then it is regulated in terms of the
Agricultural Product Standards Act, 1990.
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IMPLICATIONS OF REGULATORY INTERVENTIONS
AT ALL LEVELS
Advantages:
• promote
fair
competition
amongst
producers
• Consumer protection - ensure that safe,
quality, wholesome, unadulterated and
truthfully labeled products are offered for
sale to consumers
• Opportunities for developing countries to
stimulate economic development through
increased food and agricultural export
• prevent dumping of inferior products in our
local markets
• Prevention of introduction and spread of
exotic of plant pests and diseases
• Mitigate against animal diseases and thus
protecting animal health and public health
and environment
• harmonize with trading partners
IMPLICATIONS OF REGULATORY INTERVENTIONS AT
ALL LEVELS (Cont.)
Disadvantages:
• Can be seen stringent measures aimed at
discouraging new entrants in the markets
• Costly investments needed to meet the standards
especially the private standards
• Although efforts have been made in the past decade to
decrease trade tariffs and export duties, emerging
farmers may not be able to trade internationally
CONCLUSION
• As a result of all the developments in food trade, policy
environment is envisaged which promote competitiveness of
the farming and agri-food business while providing sufficient
protection for consumers at the country level
• This will also include:
o Strengthening biosecurity measures to mitigate against
animal and zoonotic diseases, plant health and public
health and life
o Improve food control through creation of a coherent and
integrated system to manage food safety risks
o Adopting and promoting a farm-to-fork approach along
the food chain by adopting GlobalGap, GLP, GHP,
GMP’s, etc.
• Effective participation in international standard-setting
institutions to influence decision-making processes there
and ensuring recognition of the country and continent’s
unique needs and problems
• More state assistance to farmers. SUBSIDIES?
THE END
QUESTIONS?
AND SOLUTIONS.