GF/Proceedings

FAO/WHO Global Forum of Food Safety Regulators
Marrakesh, Morocco, 28 - 30 January 2002

Improving Efficiency and Transparency in Food Safety Systems
Sharing Experiences

PROCEEDINGS OF THE FORUM

FAO, Rome, April 2002

Table of Contents

Introduction

Regulatory Issues

Risk Management

Capacity Building

Communication and Participation

Future Global Fora

Closing the Global Forum

List of Appendices and Annex

INTRODUCTION

The Global Forum of Food Safety Regulators was the first opportunity for food safety regulation officials from 110 countries to meet and discuss food safety issues of international importance. The Forum was also attended by 17 international organizations, NGOs and observers having an interest in food safety matters. The list of all participants is attached as Appendix 1.

The Forum was jointly opened by H.E. Touhami Khiari, the Minister of Health of Morocco and Mr. Ahmed Sbihi representing the Minister of Agriculture, Rural Development, Water Resources and Forestry of Morocco (see Appendix 2 for both presentations in the original language). Both stressed the need to consider and adopt new approaches to ensure safe food. They further noted that food safety must be balanced with economic concerns and market requirements. They agreed that capacity building for developing countries is now a necessity.

The Directors-General of FAO, Dr. Jacques Diouf, and of WHO, Dr. Gro Harlem Brundtland, welcomed the Forum participants by video (Appendix 3). Both noted the alarming number of deaths from food-borne diseases that occur each year, world-wide, particularly among children. Food safety is the responsibility of all and new ways must be found to prevent and respond to food-borne hazards. The entire food chain must be considered where food safety concerns are involved.

Dr. David Heymann, Executive Director, Communicable Diseases, WHO, described various emerging food-borne diseases and their impacts on human health, economics and trade. He demonstrated how risk analysis can be used as a guide for appropriate international response to food crises, particularly for developing countries. He underlined the value of international surveillance systems in these efforts (Appendix 4).

Dr. Hartwig de Haen, Assistant Director-General, Economic and Social Department, FAO, stressed the vital importance of ensuring the quality and safety of food to all countries and all people. He noted that food safety control systems must be adapted to national needs and that there must be a balance between food safety and other important aspects of food quality. Dr. de Haen also underlined the urgency of international co-operation in emergency response, communication and capacity building (Appendix 5).

The Forum elected Mr. Abdelrahman Hilali, Directeur de la Protection des Végétaux, du Contrôle Technique et de la Répression des Fraudes, Ministry of Agriculture and Rural Development of Morocco, and Mr. Jaouad Mahjour, Directeur de l'Epidémiologie, Ministry of Health of Morocco, as co-Chairmen. The Forum further elected Mrs Catherine Geslain-Lanéelle of France and Mr. Ronald Doering of Canada as co-Vice Chairpersons.

The Chairmen formally opened the Forum and the participants adopted the Provisional Agenda of the Forum (Appendix 6). Dr Mamdouh Gabr, Professor of Pediatrics, Cairo University, Egypt, was introduced to present the Global Forum Keynote Address (Appendix 7). Dr Gabr noted the continuing massive number of illnesses and deaths from food-borne disease world-wide. The problem is especially acute in developing countries. He outlined some of the key challenges that face national regulators when considering food safety issues. For example, although a quantitative approach to risk assessment is needed, it should be tempered by subjective considerations. He discussed the difficulties in both establishing and implementing food safety regulations. National policy on food safety is increasingly affected by public opinion. Dr Gabr stressed that a public information system is needed. He noted that more co-ordination is needed both internationally and nationally to avoid unnecessary controversy in food safety control. Dr Gabr concluded by outlining some future trends and research needs in the food safety area.

The Chairmen reminded the participants that the Global Forum was not intended to lead to recommendations or to decisions and that the Forum Proceedings would summarize the main issues discussed, as well as identify new developments in food safety and areas in which more dialogue and cooperation is considered necessary.

In order to focus the Forum discussions four major themes were identified, each of which involved a global food safety issue. The themes selected were Regulatory Issues, Risk Management, Capacity Building and Communication and Participation. Each theme had two key topics representing specific areas of concern within that theme. The themes and their topics were presented by food safety experts in four Discussion Groups that met separately to consider, discuss and exchange views. Conference Room Documents outlining national experiences or food safety problems encountered were provided by many countries for each Group to consider when discussing specific topics. A Discussion Summary from each Discussion Group was presented to and discussed by the entire Forum in plenary session for inclusion in these Proceedings. The following Discussion Summaries for each theme reflect the plenary comments.

REGULATORY ISSUES

The Discussion Group on Regulatory Issues was chaired by Sr. Don Angel Sartori Arellano of Chile. The Vice Chair was Dr. Piergiuseppe Facelli of Italy. Dr. Mitsuhiro Ushio of Japan's Ministry of Health, Labour and Welfare (MHLW) introduced the Regulatory Issues theme by providing an overview of Japan's food safety regulatory system and presenting important regulatory issues that all countries should consider.

The MHLW and the Ministry of Agriculture, Forestry and Fisheries (MAFF) share responsibility for the provision of safe food in Japan at the central level. MHLW and local authorities implement food safety regulation based on the Food Sanitation Law.

Japan uses a comprehensive sanitary control system based on the Hazard Analysis and Critical Control Points (HACCP) System. The MHLW approves food manufacturing or processing facilities if it is confirmed that the appropriate level of hygiene is achieved.

Food safety continues to be a challenge. Further improvement of hygiene levels, public education, and coordination of epidemiological and laboratory investigations are required.

Dr Ushio raised several regulatory issues for consideration. He indicated that a farm-to-table approach could most effectively reduce risk through the principle of prevention. This approach is hard to implement because of the time lag, geographical differences in practices, and the variety of stakeholders. The type and size of the organization(s) that are necessary to implement the food safety strategy is an important issue. Experiences with a "single food safety agency" were elicited.

Dr Ushio asked participants to share thoughts on how the safety of imported foods could be ensured by highlighting several strategies. Attendees were also reminded that they are faced with the challenge of regulating newly developed food and food derived from modern technologies. Options for motivation and implementation of an effective food safety system were presented. Strategies suggested were 1) appeal to an individual moral sense and ethics; 2) economic incentives; 3) education and communication; and 4) regulatory procedures.

National and Transboundary Food Safety Emergencies

Dr. Richard Harding of the United Kingdom's Food Standards Agency presented the first of the two topics under the main theme. He discussed the chronology of events in the UK associated with Bovine Spongiform Encephalopathy (BSE) and the application of food safety control measures. Controls have resulted in a drastic reduction of detected cases of BSE in the UK, and effective protection of public health.

Lessons Learned

There was benefit in a co-ordinated European approach. The UK learned that effective control measures must be rigorously applied. This supported the need to match policy with practice, a point made in the keynote address. Mr Harding observed that risk assessments must be based on best scientific data available. Areas such as this are characterized by uncertainty, and in practice this meant that different experts sometimes reached different conclusions, and that control measures were then set at a precautionary level to take this uncertainty into account.

Follow-up Discussion

A concern was raised that importing countries may not have the necessary resources to verify the safety of their imports. It was noted that both importing and exporting countries must ensure that appropriate controls are in place to address BSE and other food safety concerns. Another concern expressed was export by developed countries of products with standards lower than their own domestic standards. A number of countries reported that laws were in place that required exports to meet domestic standards.

It was noted that the science-based assessment of an identified risk can lead to the identification of other potential risks. Along these lines, other specific aspects about BSE were raised that merit proactive risk assessment.

An issue was raised as to the quantity of food that is lost due to burdensome regulations. There was a general agreement on the need for science-based risk assessments, and the value and need for international co-operation in the development of risk assessments. It was stressed that the measures should be proportional to the risk to public health, and that it was important to involve all stakeholders.

Recognition of the equivalence of foreign inspection systems was suggested as a means of facilitating trade. Developed countries were urged to take concrete steps in concluding such equivalence agreements with developing countries, as many difficulties seem to have been experienced in this regard. Industry was recognized as having a role and a responsibility in ensuring the safety of food. The need for even more co-operation and communication between industry and government was highlighted.

Some countries noted that regulation development is a capacity building issue. Countries where street food is a major component of the daily diet raised the question of what regulatory guidance or experiences on the subject could be shared. Codex indicated that guidelines on the safe preparation of street food were recently approved.

The issue of the safety and quality of complementary foods for infants in developing countries was raised. Concern was also expressed on the compliance to the international Code of Marketing of breast milk substitutes.

New Inspection Approaches and Techniques - Implications for Food Safety Regulations

Mr. Greg Roche of the Australia New Zealand Food Authority (ANZFA) presented the second topic. He discussed the challenging, but ultimately successful, efforts to develop and implement the new Australian Food Safety Standards.

The success story showed that mixed regulatory approaches combining mandatory requirements with voluntary prescriptive guidelines can accommodate the specific requirements of a spectrum of food related businesses. Classifying food businesses by relative levels of risk ensured resources were effectively allocated.

Lessons Learned

The ANZFA experience showed that:

  • Creating a single, uniform and simpler system of food safety laws takes time. (It took six years to get the least controversial elements introduced. The future of mandatory HACCP food safety programs is still uncertain.);
  • Lengthy, exhaustive consultations with stakeholders are essential;
  • Anticipate resistance from small businesses to the introduction of mandatory food safety programs;
  • The basis for food safety regulation is hampered by the low amount of high-quality data - specifically, on the method and pattern of transmission of food-borne pathogens to humans and the extent and cost of food-borne illness.

Follow-up Discussion

To achieve maximum prevention it is essential that safety should be built into food products from production through to consumption. This calls for a comprehensive and integrated farm-to-table approach. In this context, some countries felt that it is necessary to consider conditions under which animals are raised (including animal feeding practices and use of veterinary medical drugs) or vegetable primary products are produced (use of pesticides etc.).

In recent years, many countries have changed the structure of organizations and their philosophy of control to a more systematic application of risk analysis and use of HACCP principles. Strict co-operation is necessary between various stakeholders in the development and implementation of safe food production measures, particularly between industry and public authorities.

It was stressed that there was a need for more co-operation at the international level, and even at the regional level. It was reported that FAO/WHO have recently produced a new publication entitled `Assuring Food Safety and Quality: Guidelines for Strengthening National Food Control Systems'. Some countries stressed the importance of information exchanges, particularly between countries with similar conditions, to ensure effective regulatory measures.

The creation of an early and rapid alert system by FAO and WHO in the Codex framework was suggested. Some barriers such as shortage of human and financial resources were noted. In this context, existing experiences in the European Union, the USA and other countries would help to achieve a global network system.

The issue of food safety regulation regarding food aid was raised. In this connection, Article 9 of the WTO SPS Agreement on Technical Assistance for the developing countries was referred to.

It was noted that consumers in some developing countries had not received full benefits of domestic food safety regulatory control, since limited resources had to be devoted to quality control of exports in order that demands of importing countries in this area are fulfilled.

N.B. The theme and both topic presentations under Regulatory Issues as well as a summary of each of the CRDs submitted for each topic, are attached as Appendix 8.

RISK MANAGEMENT

The Discussion Group on Risk Management was chaired by Dr Zeinab Abd El-Haleim Hewidy of Egypt. The Vice Chair was Dr Hataya Kongchuntuk of Thailand. Mrs. Catherine Geslain-Lanéelle, Directrice générale de l'alimentation, France, introduced the Risk Management theme by presenting an overview of risk management issues that all countries need to consider. She provided specific examples from France.

The 1999 dioxin crisis in Europe was used to illustrate the precautionary principle in risk management. Bearing in mind the recognized carcinogenic effect of dioxin and the absence of specific information on the extent of contamination associated with feed containing Belgian fat, temporary precautionary measures were taken. The European Commission banned certain products of Belgian origin and restrictive measures were applied to likely contaminated flocks identified in a French traceability study. Protective measures were amended, and progressively lifted, as more precise information became available.

All aspects of food production from farm-to-table have an impact on food safety. Socio-economic changes over the last 30 years call for an integrated approach. This approach facilitates the circulation of information, allows better coherence and effectiveness of epidemiological surveillance networks and allows the traceability of foods. Traceability was presented as an important food safety management option .

Risk managers must be prepared for emergencies and emerging risks. Health surveillance is vital. It was suggested that effective regulation must be based on scientific evaluation but also requires taking account of socio-economic concerns.

There is a risk management role for food chain professionals. They are responsible for the safety of foods, provide guidance in hygiene practices, meet voluntary certification requirements, set and meet standards, and contribute information to permit traceability.

Reduction of Foodborne Hazards, Including Microbiological and Others, with Emphasis on Emerging Hazards

Mr. Ron Hicks of the Food Safety and Inspection Service of the United States presented the first topic under the main theme. He shared the US approach to risk management, which includes:

  • Transparent development of risk management strategies;
  • Strategies are based on best available information;
  • Strategies evolve to address emerging risks; and
  • Strategies evolve to utilize advances in technology and new scientific data.

The tools utilized by the US in its risk management approach include (1) regulations; (2) guidance to industry; (3) education; (4) surveillance; and (5) use of any or all available research.

This risk management approach was illustrated by the measures taken in regard to Listeria monocytogenes (LM). A 1985 illness outbreak associated with LM in soft cheese led to increased monitoring, improvements in plant sanitation procedures including voluntary HACCP systems, and a substantial government education campaign. Annual illness rates from LM declined by 44 percent. A 1998 illness outbreak associated with ready-to-eat meat products was a reminder that risk management strategies must be reassessed based on the best available information. A new risk analysis led to multiple new risk management measures, including:

  • Education of at-risk populations, the medical community, and care-givers;
  • Guidance on post-processing contamination controls;
  • Training for regulators and industry;
  • Enhanced disease surveillance;
  • Projects with retail operations;
  • Coordinated research; and
  • Proposing regulations to detect and prevent contamination in meat plants.

The implementation of mandatory HACCP systems in meat and poultry plants was also highlighted. The prevalence of Salmonella in meat and poultry products in the US has been dramatically reduced with a corresponding decrease in foodborne illnesses.

Lessons Learned

Risk management is most effective when it is based on sound scientific information or on the best available data. Strategies must evolve over time to address emerging risks or better handle known risks. Strategies should also evolve to make optimal use of technological and scientific advances. Lastly, it must include the effort of all those involved along the farm-to-table continuum.

Integrated Approaches to the Management of Food Safety Throughout the Food Chain

Dr. Stuart Slorach, Deputy Director-General of Sweden's National Food Administration, presented the second topic within the theme. He discussed a holistic, risk-based, "prevention is better than the cure" approach in managing food safety throughout the food chain.

The role of the supervisory authorities is to prescribe safety standards and to ensure that producers, processors and traders, who are identified as having primary responsibility for food safety have adequate internal control system based on HACCP principles. This could be accomplished best by having a single agency with responsibility for the whole food chain or close co-ordination if more than one agency is involved. Consumers have responsibility for food hygiene in the home and for dietary habits.

Sweden's approach to controlling Salmonella in broilers illustrated the holistic approach (1) the breeding pyramid and the feed are kept free of Salmonella; (2) Production facilities, flocks and carcasses are monitored; (3) Controls are carried out at the retail level and consumers and caterers are educated; (4) There is follow up of food poisoning outbreaks.

Lessons Learned

  • Food safety strategies should be risk-based and cover the entire food chain.
  • The follow-up and reporting of foodborne disease outbreaks should be improved.
  • An integrated, multidisciplinary approach to food safety, that addresses problems at the source, should be adopted.
  • In-house control systems based on the HACCP approach are needed.
  • Food inspection and monitoring results should be made public.
  • Training of catering personnel and the education of consumers in food hygiene should be improved.
  • Contacts between food safety and environmental protection officials should be improved.
  • Adequate resources should be assigned for the detection of emerging risks.

Follow-up Discussion

N.B. The discussion was delayed until after presentation of the second topic paper. The following therefore reflects the combined discussion of both topics.

Many countries described their systems for risk management, including regulatory aspects, control programs, agencies involved, crisis management, sanitary surveillance and food monitoring, and networking among others.

Specific hazards discussed included deteriorated sugar cane food poisoning in China,
Escherichia coli outbreaks in Japan and the United Kingdom, the "Dioxin crisis", and Salmonella control in Sweden.

During the discussions, the following observations were made:

  • National food safety management systems are different and co-operation among competent bodies was recognized as essential;
  • Co-operation and effective partnership among governments, farmers, industries and consumers in sharing responsibilities to address food safety issues is needed;
  • Risk managers have employed various strategies. These include:
    • risk assessment using available data and continuous revision;
    • support by some that precaution is a tool in the case of incomplete risk assessment;
    • support by some for the use of traceability or trace-back systems;
    • strategies that deal with all aspects of food protection from farm-to-table including relevant cooling and freezing systems; and
    • emphasis on prevention by implementing systems such as HACCP;
  • It was recognized that research on food safety hazards was important to fill data gaps and provide practical tools for reducing food-borne hazards and also necessary to assess the risk management strategies. The involvement of universities and research institutes is vital.
  • Surveillance and reporting systems were considered as the base for the timely detection of illness outbreaks and emerging food-borne hazards.

Concerns were expressed on the following main issues:

  • lack of a specific food safety policy or the consideration that such a policy is of low priority;
  • lack of data on food-borne illness while trying to maintain a high level of vigilance for food-borne hazards;
  • the need to sensitize food handlers and consumers to the relationship between hygienic practice, food safety and food-borne disease;
  • the need to train officials and upgrade laboratories to accomplish food safety control;
  • the safety of imported foods is a major concern for some countries due to lack of facilities for laboratory testing;
  • the difficulty of reducing hazards when the educational level of the audience is low.

N.B. The theme and both topic presentations under Risk Management, as well as a summary of each of the CRDs submitted for each topic, are attached as Appendix 9.

CAPACITY BUILDING

The Discussion Group on Capacity Building was chaired by Dr Junshi Chen of China with Dr Svetlana Borislavova Tcherkezova of Bulgaria serving as Vice-Chair. Mr. Gregory Orriss of the Canadian Food Inspection Agency introduced the Capacity Building theme by presenting an overview of international capacity building and technical assistance. He emphasized the importance of food safety capacity in the context of public health and access to international markets. WHO estimates that in 1998 2.2 million people, mostly children, died from diarrhoeal diseases, many attributable to contamination of food and drinking water. Developing countries face challenges due to population growth, growth in the number of immuno-compromised individuals, increased urbanization, and inadequate infrastructure.

Developing countries have opportunities to expand markets due to worldwide reductions in tariffs and subsidies, new rights and obligations under the SPS Agreement, and increased demand for a variety of foods. Still, developing countries that export food face significant challenges in meeting importing country health and safety requirements. Developing countries need capacity building to be able to take full advantage of their SPS rights and obligations. The capacity and technical assistance needs of developing countries can be summarized as: (1) Basic infrastructure, (2) National food control strategy; (3) Food legislation and regulatory framework; (4) Food inspection services; (5) Food control laboratories and equipment; (6) Disease surveillance systems; (7) Participation in international standard-setting organizations; (8) Implementation of food quality and safety assurance systems by the industry; (9) Collaboration and cooperation of food control agencies; and (10) Scientific and technical expertise.

While there has been considerable technical assistance provided over the recent years, it has not been effectively coordinated and has been inadequate for many developing countries to meet their public health and market access needs. Recently, in Doha, FAO, OIE, WHO, WTO and the World Bank pledged to work together to strengthen the capacity of developing countries to establish and implement science-based sanitary and phytosanitary measures.

Suggested approaches for capacity building included: (1) Building alliances; (2) Communication and exchange of information; (3) Coordination of activities; (3) Preparation of an assessment of needs and a country profile; (4) Identifying financing sources; (5) Initiating technical cooperation between countries and institutions; (6) Sector specific activities; and (7) Regional approaches. Solutions will require the concerted efforts of developing countries, FAO, WHO, other international organizations, and developed countries.

Technical assistance to developing countries

Dr. Leo Hagedoorn of the Ministry of Agriculture of The Netherlands presented the first topic under the main theme. He shared the Netherlands' experience in technical assistance and capacity building efforts. The Netherlands supports the efforts of international organizations in capacity building. Further, the Netherlands is a Member State of the European Union, which over the past 10 years has tripled external assistance programs to reach 12.3 billion Euros in year 2000.

Three assistance activities of the Netherlands were highlighted including (1) the Center for Promotion of Imports from developing countries, which has initiated a program to enhance the fresh fruit and vegetable sector in selected African countries - the aim is to address some of the critical technical non-tariff barriers to trade and to build up local institutional capacity; (2) the Europe/SADC Initiative, which is a Dutch initiative aimed at achieving further regional cooperation in the area of agriculture between countries in the EU and the South African Development Community - areas for cooperation are food security, food safety, trade in agricultural products, and sustainable agriculture; and (3) the ASEM (Asia-European Meeting) seminars, which promotes the use of risk analysis as the basis for establishing SPS measures.

Lessons Learned

The Netherlands' experience in technical assistance and capacity building suggests that support should be given for longer periods and that more emphasis should be given to regional approaches. Capacity building provided by international organizations should be integrated and co-ordinated.

Follow-up Discussion

Many developed countries described their specific technical assistance activities. However, many developing countries, while appreciating that assistance, expressed concerns that the assistance did not adequately meet their public health and market access needs.

Specific concerns included the lack of focus and co-ordination of assistance received. Several countries and international organizations provided further information on their technical co-operation programmes. While recognizing the logic of regional approaches, a number of countries expressed the view that careful consideration should be given to specific national needs.

New Approaches and Building Alliances in Capacity Building and Technical Assistance

Mr. Deepak Gupta, Joint Secretary and Chairman, National Codex Committee at India's Ministry of Health gave the second topic presentation. He discussed new approaches and building alliances in capacity building and technical assistance. He emphasized that progress in taking food safety measures will only come when capacity is created to design and effectively implement those measures.

Capacity building must reflect the needs, priorities and conditions of developing countries. Some problem areas were identified as:

  • While much has been done in capacity building, efforts have been sporadic and critical mass and multiplier effects have not been achieved.
  • Technical assistance has been largely focussed in food export areas and is seminar driven, which is expensive and has limited reach.
  • Technical assistance under the SPS Agreement has been largely notional even when developing countries have incurred substantial costs to meet import requirements.
  • Increasing sophistication of laboratory instrumentation and methods of food analysis
  • Codex standards primarily based on information provided by developed countries on the principle of `highest' not `appropriate' levels of protection, thus acting as non-tariff barriers to some developing country exports.
  • Capacity building required to enable developing countries to take part fully in the standard setting process including physical attendance at Codex meetings
  • Poor response by developed countries in concluding Equivalence Agreements

Lessons Learned

Specific areas of action were identified as: (1) the development of a National Action Plan based on a needs assessment; (2) the strengthening of national food control systems; (3) collaborative projects for capacity building within the National Plan; (4) improving laboratory infrastructures; (5) preparation of GMP / HACCP / GHP norms for medium and small businesses, with special attention to street food/catering establishments; (5) sustainable education and training; (6) a national alliance of scientific and academic institutions, professional associations, and trade bodies; (7) strengthening existing institutions to Centres of Excellence and Collaborating Centres; and (8) improved foodborne disease surveillance.

Some topics deserving further consideration include (1) consideration by FAO, WHO and other international organizations to co-ordinate all technical assistance at the country level; (2) preparation of national HACCP training and implementation programmes; (3) consideration by WHO to strengthen WHO Regional Offices; (4) provision of technical support in the form of experts at National Food Safety Control points; (5) preparation of Internet-based training and sensitization programmes; (6) improvement of data generation from developing countries for Codex standard setting; (7) preparation of a database of import requirements of developed countries; (8) setting up a Global Food Safety Fund or other funding mechanism to support developing countries; and (9) identification of appropriate instrumentation and methods of food analysis.

Follow-up Discussion

Several key issues were identified for capacity building based on country experiences and problems. Channels of communication and mechanisms for collaboration are needed for co-ordinating efforts and building partnerships. Existing research and academic institutions could be used for specific tasks related to food safety. This will promote co-ordination and sustainability.

Several countries suggested that food safety should be integrated into primary and secondary school education. Networking of laboratories was proposed by several countries as a means to improve efficiency and share laboratory expertise.

A number of countries emphasized the need for communication and co-operation among international, regional and national organizations. These communications may have several mechanisms such periodic meetings, inventories of actions and needs, information on seminars and workshops (e.g. venue and content), and creation of a database related to technical assistance. Co-operation between all involved organizations was considered essential for an optimal programme of work. Participants were informed of ongoing efforts to better co-ordinate technical assistance and capacity building activities among the FAO, WHO, OIE, World Bank and WTO.

The participants placed a great emphasis on an inventory of needs. It was felt that such an evaluation should be undertaken by the candidate countries themselves with the assistance of international organizations.

It was noted that through ongoing technical assistance programmes, national expertise in developing countries has been established. However, quite often this expertise is not acknowledged at an international level. Engagement of local expertise along side of international experts was seen as an important contribution to capacity building in developing countries as well as being of extreme value in binding alliances between developing countries, by contributing to better adjustment of the technical cooperation to the beneficiary countries through better insight into national specifics.

Many countries emphasized the fact that, in order for technical co-operation activities to be effective and sustainable in the long term, all other stakeholders should be involved in addition to professional capacity building. Special emphasis should be given to appropriate sensitization of key persons, such as policy makers, and to the development of public education programmes related to food safety, such as school health education and the development of consumer awareness.

N.B. The theme and both topic presentations under Capacity Building as well as a summary of each of the CRDs submitted for each topic, are attached as Appendix 10.

COMMUNICATION AND PARTICIPATION

Dr. C.J. Kedera of Kenya chaired the Discussion Group on Communication and Participation. Dr Azriman Rosman of Malaysia was the Vice Chair. Mr José Luis Flores of the Secretariat of Health of Mexico presented an overview of the theme of Communication and Participation using the experience of Mexico as an example. He explained the roles of the various officials involved in food control and noted that Mexico's efforts to communicate during the development of food safety laws and regulations raised issues for all countries to consider.
These included:

  • Establishment of a General Office for Consumers' Communication;
  • Basic education on food safety is required at the elementary school to foster communication and participation;
  • Forming a Master Plan on Food Safety for the promotion of GAP, GMP, SSOP and HACCP;
  • Offering a training program for housewives to foster hygiene practices and handling of food in the home;
  • Creation of a single food safety system through a consultation with all stake holders;
  • Promoting awareness programs with producers' associations to facilitate the process of establishing risk reduction systems.

Communicating Food Safety Regulations and Risk Management - Involvement and Participation of Consumers and other Stakeholders

Ms. Antonia Maria de Aquino, Ministry of Health, Brazil introduced the first topic under the general theme. She shared Brazil's experience in the implementation of risk analysis.

She related two experiences highlighting Brazil's methods of communicating food safety information. The first involved botulism associated with canned palm heart. A risk analysis was initiated and a technical group comprised of all stakeholders was formed. Initially, a temporary product label was used to warn consumers. In addition, a "Warning to the Population" was announced in popular newspapers and on television. Products associated with the outbreak were recalled.

In second instance, a survey of salt samples showed large deviations in levels of added iodine. New requirements were established for the iodized salt industry. The Service for Industrial Learning was enlisted to help disseminate the new requirements. Advertising campaigns by the mass media was done and information materials were delivered to schools to inform consumers about risks from iodine deficiency. Health community agents, of whom there are 144,000 members, took part in the risk communication through housecalls.

Lessons Learned

Ms. Aquino's presentation identified a number of communication options, including:

  • Warning labels;
  • Notification through newspapers and television;
  • Use of Internet;
  • Enlisting organizations in communications with industry, schools and direct visits to homes.

Follow-up Discussion

It was clear during the ensuing discussion that communication has an all-important role in many aspects of food safety, including:

  • Controlling and managing food safety crises;
  • Safety standards of food as well as new regulations;
  • Informing and educating consumers and public at large;
  • Getting feedback from consumers and other stake holders.

Communications with consumers and other stakeholders has improved the quality of risk management decisions, allayed public fears and reduced panic when food safety emergencies have occurred.

Several possibilities were suggested to accomplish effective communications. These included:

  • Information in relation to risk management needs to be shared by the members of an inter-ministerial body to address public comments and concerns;
  • Establishment of consumer forums and public meetings to discuss food safety;
  • Enacting national laws which require governments to consider consumer participation and contribution;
  • Use of existing groups such as Codex National Committees.

It was noted that the characteristics of effective communications are multi-channelled dialogues with all stake holders that are complete and factual, that note and acknowledge uncertainties, and that ensure that communications are timely, clear, specific and understandable.

Ensuring Efficient Communication and Interaction between Food Safety Risk Assessors and Risk Managers

Dr. Hans Dieter Boehm, Germany's Federal Ministry of Consumer Protection, Food and Agriculture introduced the second topic under the general theme. He discussed a paper based on the WHO Expert Consultation The Interaction between Assessors and Managers of Microbiological Hazards in Food held during March 2000 in Kiel, Germany. This Expert Consultation made the following principle comments and proposals:

  • Food safety systems should be structured on a risk-based approach with appropriate interaction between risk assessors, risk managers, and stakeholders;
  • A functional separation of risk assessment and management is essential;
  • Independence, transparency, and robustness of scientific analyses are essential for credibility. Nonetheless, dialogue among assessors, managers, and stakeholders is essential to maximize utility of assessment findings;
  • National governments should acknowledge the importance of functional risk assessment and risk management while ensuring transparent and appropriate interactions.

Follow-up Discussion

It was generally noted that risk assessors and risk managers were separate groups. However, some countries were of the opinion that both functions could be combined especially where the documentation is publicly available. The functional separation of risk assessment and risk management contributes to increasing the transparency of the risk analysis process. Where both the risk assessment and risk management processes are documented and transparent, the integrity of the risk assessment process can be maintained. In addition, there are several other benefits that can be derived from this separation:

  • Maintenance of scientific independence
  • Facilitation of an open dialogue and open communication between risk assessors and risk managers
  • Clarification of communications with the public on scientific issues as well as other relevant factors considered in the risk assessment

It was noted that risk assessment need not be a long or expensive process. The final consideration being that any use of the risk assessment process will improve risk management decisions. The use of the risk analysis paradigm will ensure the effective use of limited resources in the food safety area.

Several countries expressed the need for generic risk assessment. It was noted that generic risk assessment framework is available and is used at the international level. However, application at the national level requires local data on intake and exposure to be included into the generic risk assessment to reflect the realities of the local conditions.

Some concerns were expressed that the mass media may misreport a food safety emergency and cause public panic. It was suggested that in order to avoid this circumstance and build trust there must be complete transparency in the risk assessment process and open, direct communication with the media.

It was noted that capacity building and development activities must include information, education and training for consumers and other interested parties who may be involved in the risk assessment and risk management processes.

N.B. The theme and both topic presentations under Communication and Participation, as well as a summary of each of the CRDs submitted for each topic, are attached as Appendix 11.

FUTURE GLOBAL FORA

There was general agreement among the participants that a second forum with possible succeeding fora should be held. The Global Forum is not designed to compete with or replace other ongoing international meetings. As the participants are primarily food regulators, many are involved with Codex activities. The Codex Alimentarius Commission (CAC) meets on alternate years with the next session scheduled for 2003. It was therefore suggested and agreed that the next Global Forum meet in 2004, with any succeeding fora meeting during those years that the CAC does not meet.

The joint secretariat provided two suggested themes for the next Global Forum, for consideration by the participants. These were:

1. Application of risk analysis in food safety

The Global Forum is a forum to share information and experiences. Several countries have in recent years started adopting new thinking in food safety and are producing their first experiences in the application and use of risk-based food safety management systems.

These changes generate new regulations that will affect the safety of the food supply along the whole food chain not only domestically but also in other countries when traded goods enter the food chain. Thus, even countries that do not yet have a risk-based food safety system will undoubtedly also be affected by the actions of countries adopting risk-based regulations. They will therefore also have experiences to share. Since this is a new area, most countries will be in dire need of information and experiences from which they can learn and from which they will eventually be able to improve the functioning of food safety systems.

2. Building effective food safety systems

The Global Forum is a forum to share information and experiences. In all countries the area of food safety is defined by the interplay of government, private sector, consumers and other partners such as the academia and the media. It has been demonstrated that the effectiveness of food safety systems relies heavily on coordination, collaboration and communication of all activities, not only to be cost-effective but also to increase confidence. The role and responsibilities of each partner in a food safety system should be clearly defined, the overall functioning of the system should be based on a number of agreed principles, and it is felt that the aim of the forum could be to share information on the structure of existing food safety systems, their strengths and weaknesses, in order to find ways of improving the present systems throughout the world with a view to directly improving the food safety situation, and to increase subsequently the confidence of all stakeholders.

There was considerable discussion over the choice of the central theme for the next forum. Most countries supported the second suggested theme (building effective food safety systems). Several countries also supported a possible theme of development of a worldwide food safety information system. One country pointed out that a future forum would benefit from regional conferences to discuss food safety needs held in advance of the forum. It was decided that the final decision would be left to the joint FAO/WHO Secretariat. It was also suggested that a scoping meeting may be convened by FAO and WHO to decide on the theme for the 2004 Global Forum. Several countries requested that the topics selected for the next forum be practical and pragmatic with a narrow scope allowing greater focus during discussions. It was also suggested that more time be allowed as it was felt that the present Forum was too short. It was further suggested that the next forum venue again be in a developing country.

The secretariat summarized the points agreed to by the participants as:

  • The next Global Forum to be held in 2004 with any succeeding fora held during years that the CAC is not in session;
  • The next Forum theme to be Building effective food safety systems;
  • Selected topics under the main theme to be limited in scope as well as being practical and pragmatic;
  • Additional time to be considered;
  • The next Forum venue to be held in a developing country.

CLOSING THE GLOBAL FORUM

Prior to the closing of the Global Forum the Chairman of the Codex Alimentarius Commission, Mr. Tom Billy, was invited to make a presentation regarding the present and future activities of Codex. Mr. Billy noted that at the last Commission session in 2001, the Codex adopted both a Strategic Vision statement and a Strategic Framework with Objectives. The Framework established six strategic objectives and priorities of Codex. These were:

  • Promotion of sound national food control and regulatory systems from farm to table;
  • Promotion of the widest application of risk analysis;
  • Promotion of seamless linkages between Codex and multilateral bodies;
  • Increased efficiency and stronger management oversight of Codex work;
  • Full participation by Codex members and interested parties;
  • Promote the maximum use of Codex standards, nationally and internationally.

He advised the participants that the work on the new objectives has already begun. FAO and WHO are designing a Codex Participation Trust Fund for developing countries. Also, a FAO/WHO management review and evaluation of the work of Codex has been initiated.

H.E. Ismail Alaoui, The Minister of Agriculture, Rural Development and Forests of Morocco, officially closed this first Global Forum of Food Safety Regulators on behalf of the Government of Morocco and H.R.H. King Mohammed VI. He stressed the importance of international meetings such as this to focus the attention of the world on food safety matters. He noted that the Forum opened new horizons for co-operation between institutions and organizations responsible for food safety. He thanked the participants for their efforts over the previous three days and stated that Morocco was pleased to have been the host of this most important activity.

The Chairmen provided the Forum participants with a general statement and summary of the deliberations and findings of this first FAO/WHO Global Forum of Food Safety Regulators (see the following page).

 

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