New Zealand's Strategic Objectives in Codex 2015-2020 - Ministry for Primary Industries Manatū Ahu Matua - MPI
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New Zealand’s
Strategic Objectives
in Codex
2015–2020
Ministry for Primary Industries
Manatū Ahu Matua
PO Box 2526, Wellington 6140
New Zealand
0800 00 83 33
www.mpi.govt.nz
Publisher Ministry for Primary Industries Pastoral House, 25 The Terrace PO Box 2526, Wellington 6140, New Zealand Tel: 0800 00 83 33 Web: www.mpi.govt.nz This publication is available on the Ministry for Primary Industries website at http://www.mpi.govt.nz/news-and-resources/publications/ Further copies may be requested from brand@mpi.govt.nz ISBN No. 978-1-77665-033-0 (print) ISBN No. 978-1-77665-034-7 (online) Disclaimer While every effort has been made to ensure the information in this publication is accurate, the Ministry for Primary Industries does not accept any responsibility or liability for error of fact, omission, interpretation or opinion that may be present, nor for the consequences of any decision based on this information. This work is licensed under the Creative Commons Attribution 3.0 New Zealand licence. In essence, you are free to copy, distribute and adapt the work, as long as you attribute the work to the Crown and abide by the other licence terms. To view a copy of this licence, visit http://creativecommons.org/licenses/by/3.0/nz/. Please note that no departmental or governmental emblem, logo or Coat of Arms may be used in any way which infringes any provision of the Flags, Emblems, and Names Protection Act 1981. Attribution to the Crown should be in written form and not by reproduction of any such emblem, logo or Coat of Arms.
Contents Foreword 2 Strategic Statement and Overview 3 Introduction and background 4 Codex and the World Trade Organization (WTO) 4 New Zealand and Codex 5 Role of the Ministry for Primary Industries 5 Strategic Objectives 7 Strategic Objective 1: Strongly influence Codex standards to reflect New Zealand’s interests in food safety, public health and trade 7 Strategic Objective 2: Strengthen strategic relationships and alliances 9 Strategic Objective 3: Promoting a strong, efficient and responsive Codex 11 APPENDIX 1: Structure of the Codex Alimentarius Commission 13 NEW ZEALAND’S STRATEGIC OBJECTIVES IN CODEX: 2015 - 2020 1
Foreword
International food standards are essential for
promoting harmonised approaches, and reducing
technical barriers, to trade.
The Codex Alimentarius Commission (CAC) plays a
central role in the development of international food
standards for health protection and trade.
As a major food-exporting country, New Zealand has a strong interest in the work of
the CAC and promoting the development of sound, science-based standards.
New Zealand enjoys a high profile and credibility with the CAC and has, over the years,
promoted the development of international food standards in areas of economic and
trade significance to this country.
Food safety issues are of wide public interest. Having a clear statement of our
priorities and interests in CAC is important for transparency so that all interested
parties are able to play a role in advancing our national interests.
I urge all interested parties to take an active interest in CAC-related matters and
contribute to the development of sound national positions on international food
standards of importance to New Zealand.
Hon Jo Goodhew
Minister for Food Safety
2 Ministry for Primary Industries
Strategic Statement
and Overview 1
• New Zealand’s long term prosperity and wellbeing depend on sustained growth and access to
international markets for our food and agricultural products.
• The work of the Codex Alimentarius Commission is critical to promoting international
harmonisation and reducing technical barriers to trade.
• Codex food safety standards are recognised as international benchmarks under the World
Trade Organization Agreement on the Application of Sanitary and Phytosanitary Measures
(the SPS Agreement).
• Implementation of the SPS Agreement and promotion of international harmonisation based on
Codex and other relevant international standards are essential to advancing the objectives of
New Zealand’s free trade arrangements.
• New Zealand enjoys a high level of recognition and profile in Codex through our leadership
and commitment to international food standards that are based on sound science and risk
assessment, and that meet the needs of health protection and trade.
• New Zealand has successfully promoted the development of key food safety and related
standards of major economic significance to the primary sector and is the host government for
the Codex Committees on Meat Hygiene, and Milk and Milk Products.
• Continued participation in the work of Codex is critical to achieving our national food safety,
public health and trade objectives and advancing the MPI Strategy 2030 for Growing and
Protecting New Zealand.
• Engagement with industry, consumers and other stakeholders is critical to promoting their
involvement and contribution and underpinning New Zealand’s highly regarded position in
Codex.
• A clear, well-articulated strategy is essential to guide our participation in Codex and ensure
that we advance our objectives in an efficient, systematic and cost effective manner.
Introduction and background
1 The term “Codex” refers to the outputs and activities of the Codex Alimentarius Commission
(Codex or the Commission). Codex was established in 1963 by the Food and Agriculture
Organization of the United Nations (FAO) and the World Health Organization (WHO) as part of the
Joint FAO/WHO Food Standards Programme. Since its establishment, Codex has developed a
large body of international standards and guidelines for use by members for health protection and
trade in food. This compilation is called Codex Alimentarius (Latin for food code). The standards
established by Codex range from maximum limits for residues of pesticides and veterinary drugs
in food to principles, guidelines and codes of practice covering such areas as food hygiene,
contaminants, food labelling, inspection and certification and methods of analysis.
2 The Commission meets annually to adopt international standards and discuss other matters
related to food safety and trade. The Commission is the final decision making body within the
Codex system. The work of Codex is carried out by subsidiary bodies grouped along the lines of
general subject committees, commodity committees, ad hoc task forces and regional
co-ordinating committees.
NEW ZEALAND’S STRATEGIC OBJECTIVES IN CODEX: 2015 - 2020 3
3 Membership of Codex has grown significantly in recent years against the background of
globalisation and growing awareness and interest in food safety. This underlines the essential
role that the organisation has played in developing international standards for food safety, health
protection and trade1. The growth in membership, the induction of many new members and the
inclusion of a wider range of observers has created new dynamics within the Codex system in
terms of greater diversity of interests, experience and approaches.
Codex and the World Trade Organization (WTO)
4 As one of the three recognized international standards setting bodies, the work of Codex is critical
to advancing the objectives of the World Trade Organization (WTO) Agreement on the Application
of Sanitary and Phytosanitary Measures (the SPS Agreement) and the Agreement on Technical
Barriers to Trade (the TBT Agreement).
5 The SPS Agreement provides a strong rules-based framework for development of sound, science
based international standards and encourages its members to harmonise with international
standards, guidelines and recommendations to the maximum extent possible. Codex food safety
standards are recognised as international benchmarks under the SPS Agreement.
6 The TBT Agreement is also relevant to Codex given that many of the components of food standards
relate to product description, labelling, consumer information and appropriate trade practices.
The TBT Agreement sets out the essential disciplines relating to technical regulations to ensure
that these are not more trade restrictive than necessary to fulfil a legitimate objective and do not
constitute disguised barriers to trade.
7 The SPS and TBT Agreements are complementary and mutually reinforcing and provide a strong
framework of rules and disciplines for technical standards and regulations at national and
international levels.
New Zealand and Codex
8 New Zealand is a founding member of Codex and has a strong profile and track record in the
organisation in terms of leadership, participation and taking a principled approach to our
engagement in Codex work. A key guiding principle is that international standards and guidelines
should be developed on the basis of sound science, risk assessment and best practice.
We participate across a wide range of committees and subject areas and have played a leading
role in international standards development in the areas of food hygiene, food additives, pesticide
residues, food inspection and certification, sampling and testing methods, and nutrition.
9 New Zealand has the privilege of chairing two important Codex committees. This is a much sought
after role by member countries and carries with it a high international profile in Codex.
As host government of the Codex Committees on Meat Hygiene (CCMH) and Milk and Milk
Products (CCMMP), New Zealand has steered the work of developing international standards for
assuring the safety and quality of meat and dairy products. Examples of standards of major food
safety and/or trade significance that have been developed by these and other Codex Committees
and their benefits to New Zealand include:
• protein standardisation provision in the Codex General Standard for the Use of Dairy Terms
1 As at July 2015 membership of the Commission stood at 186 (185 member countries and 1 member organisation) and, in
addition, 229 Codex observers.
4 Ministry for Primary Industries
and related product standards which enabled New Zealand to secure higher return for its milk
products;
• microbiological criteria for food in trade, especially meat and dairy products;
• guidelines for control of parasites in meat, allowing cost-effective inspection and assurance;
• development of product standards such as individual cheese standards and apples that are
flexible enough to accommodate New Zealand’s circumstances, not overly prescriptive, and
supportive of product innovation and market differentiation;
• development of international principles for promoting establishment of risk-based food control
systems;
• development of principles for sampling and testing in food trade to promote risk-based
approaches and reduce compliance costs.
Role of the Ministry for Primary Industries
10 The Ministry for Primary Industries (MPI) is the lead agency for Codex in New Zealand. MPI is
responsible for managing input and participation in the organisation. In advancing New Zealand
interests in Codex, MPI works closely with other government agencies, notably, the Ministry of
Foreign Affairs and Trade (MFAT) and the Ministry of Health (MoH). MPI’s work in Codex is critical
to achieving national food safety, public health and trade objectives and advancing the MPI
Strategy 2030 for Growing and Protecting New Zealand and supporting our
strategic focus to:
• maximise export opportunities and improve sector productivity; and
• increase sustainable resource use and protect from biological risk.
11 New Zealand’s long-term prosperity and wellbeing depend on sustained growth and access to
international markets for our food and agricultural products. Sound science-based international
standards are essential to promoting international harmonisation and reducing technical barriers
to trade. A clear, well-articulated strategy is essential to guide our participation in Codex and
ensure that we advance our objectives in an efficient, systematic and cost effective manner.
12 Many of New Zealand’s trading agreements reference the implementation of the SPS Agreement
and applicable international standards. New Zealand and our trading partners are obligated
to take into account Codex standards when carrying out implementation activities particularly
with regard to the application of equivalence. Collaboration on standards development that are
of mutual benefit to partner countries and using standards that support equivalence and other
outcomes are important tools for trade facilitation. Furthermore the relationships, trust and
confidence that are established through Codex processes are complementary to support wider
trade facilitation activities.
13 The work of Codex is of wide public interest, and sound policy development and advocacy requires
effective consultation at the national level. MPI operates an open and transparent process of
consultation with stakeholders to ensure that our positions are sound and due consideration is
given to the input and involvement of all interested parties.
14 Evidence based standards that are relevant, workable and have global application rely on wide-
ranging research and development and on information and data provided by industry and other
groups. MPI works with industry and other stakeholders to ensure that New Zealand’s input is
always based on sound scientific evidence.
NEW ZEALAND’S STRATEGIC OBJECTIVES IN CODEX: 2015 - 2020 5
2 Strategic Objectives
Strategic Objective 1:
Strongly influence Codex standards to reflect New Zealand’s
interests in food safety, public health and trade
Rationale
15 New Zealand has achieved a high level of recognition, credibility and profile in Codex through
our demonstrated objective commitment to multilateralism, international harmonisation and
reduction of technical barriers to trade through the development of sound international standards.
We have also established an enviable track record through our demonstrated success in leading
the work of the Codex Committees on Meat Hygiene and Milk and Milk Products. Much of this
work is underpinned by research, experience and information provided by industry and research
institutions.
16 This success has provided a sound platform for the advancement of New Zealand’s ideas and
influence across a wide spectrum of Codex work including food hygiene; nutrition; inspection
and certification; methods of analysis and sampling; residues of pesticides, veterinary drugs and
contaminants in foods; and food labelling. More specifically New Zealand has been leading the:
• development of international codes of practice to address specific commodity-hazard
combinations and promote a risk based approach to managing food safety and to the
application of least trade restrictive measures;
• revision of specific product standards such as the one for Follow-up Formula (for infants and
children) to take account of technological advances and improved knowledge on the nutritional
needs of infants and young children and to remain an up-to-date point of reference on a
commodity of international importance;
• development of principles for sampling and testing of foods in trade;
• revision of the outdated Codex provisions relating to date marking of foods which has assumed
added significance in the context of global concerns about food security, food losses and
wastage arising from inappropriate use and application of labelling requirements, and the
needs of developing countries.
17 New Zealand sees the continued application of risk analysis frameworks and principles to
Codex decision making as essential to the development of international standards suitable for
application by all members. As members of the WTO, New Zealand and other countries are
encouraged to harmonise with Codex standards where these exist but also have the right to
establish their own measures where an international standard does not meet their appropriate
level of protection.
18 The work of Codex has assumed even greater significance in the context of global concerns
around food security, climate change and sustainability. The reality that there can be no food
security without food safety is becoming more widely acknowledged. There is also the added
dimension of food defence and protection of food supply from criminal actions. Against this
background, there is now an even greater imperative to support the development, uptake and
implementation of harmonised, sound food safety policies and approaches to food security and
health protection. New Zealand should actively identify and seek multilateral solutions to technical
barriers to trade that are put in place in the interests of food security and promote greater global
food security through trade.
6 Ministry for Primary Industries
19 Technological advances and development of new generation substances (such as nitrification
inhibitors) for environmental risk management and mitigation of greenhouse gas emissions have
the potential to add a new dimension to Codex work. New Zealand considers that these issues
should be given proactive consideration at the international level to address any potential and
inadvertent implications for food safety and trade.
20 Codex work is also important to deal with the growing incidence of obesity and non-
communicable diseases as emphasised by the Second International Conference on Nutrition
(ICN2)2. The work in the Nutrition and Labelling committees with regard to the establishment
of nutrient reference values and the revision of the list of nutrients that should be declared in
the Nutrition Information Panel are directly in support of nutrition and public health objectives.
There is also a clear need for improved coordination and co-operation between FAO, WHO and the
World Organisation of Animal Health (Office International des Epizooties) (OIE) and support the
development of well-co-ordinated global initiatives and actions to deal with current challenges in
food safety and public health across the food chain.
21 With technological advancement in testing equipment there is also growing concern that
compounds are able to be detected in food at very low concentrations (parts per billion), with
hundreds of compounds able to be screened simultaneously. The levels detected may have no
biological significance for human health but may lead to trade restrictions by importing countries.
Implementation strategies and actions
22 Lead/promote the development of international standards in areas of critical importance to
New Zealand:
• Lead working groups in the development of draft standards that are important to New Zealand
from food safety, public health and trade perspectives.
• Support Codex work relevant to promoting healthy food choices (through improved labelling
and consumer information) and reducing the risk of non-communicable diseases.
• Partner with trading partners to support the development of standards that are of mutual
interest.
• Provide scientific data and research information in support of international standards setting.
• Provide New Zealand technical expertise to international expert consultations and scientific
panels.
• Explore multilateral solutions to deal with new generation issues arising from actions to
mitigate the impact of climate change on agriculture and food production.
• Promote risk based responses to address very low level detection of compounds that may not
have been addressed by Codex and have no known biological implications.
23 Continue to champion development and application of risk analysis principles through contribution
of practical examples and modelling expertise.
24 Engage with stakeholders generally and the primary and food manufacturing sector in particular
and consult on Codex matters at the national level:
• Consult all interested parties on Codex matters.
• Improve knowledge and understanding of Codex, both within MPI and outside through targeted
training and information workshops.
2 Second International Conference on Nutrition, Rome, Italy, 19-21 November 2014.
NEW ZEALAND’S STRATEGIC OBJECTIVES IN CODEX: 2015 - 2020 7
Strategic Objective 2:
Strengthen strategic relationships and alliances
Rationale
25 Codex is a consensus based organisation that relies on strong collaborative relationships to
achieve common goals and objectives. Over the last decade or more there has been a substantial
growth in membership of the Commission with developing countries now constituting a majority
of membership. This has brought a new dynamic to Codex meetings. There is a continuing need to
invest in training and capacity building to assist developing countries to improve their capacity to
participate in Codex and contribute effectively to international standards development.
26 New Zealand has strong traditional collaborative relationships with United States of America
(USA), Canada and Australia (the so called Quad countries) and works closely with these
countries in support of international standards that are based on sound science and ensure
appropriate trade practices. In addition, New Zealand has also worked steadfastly to strengthen
our relationship with the European Union (EU), which now represents a significant group within
the Codex system. Such strategic connections and alliances are essential for improving trust and
communication among members and promoting consensus based solutions to bridging often
divergent national positions.
27 New Zealand has also made significant contributions in support of capacity building activities in
the Asia Pacific region. Such capacity building is in line with our international obligations under
the WTO SPS and TBT Agreements. Many developing countries are looking to countries like
New Zealand for guidance and mentoring. These countries are seeking support to participate
more effectively in Codex and strengthen their capacity to apply Codex standards at the national
level.
28 In the past decade New Zealand’s strategic trade interests have shifted markedly. While the USA
and EU remain significant trading partners, there has been a large shift of trade (volume and
value) towards Asia and the Middle East, and to a lesser degree towards South America and Africa.
Collaborative work in international standards with countries of growing strategic trade importance
affords New Zealand an ideal opportunity to enhance bilateral relationships.
29 Such bilateral or plurilateral relationships are of increasing importance worldwide. It is important
that Codex should acknowledge the significance of these relationships and the role that Codex
standards can play in them, in addition to the present focus on the use of Codex standards in
national legislation.
30 It is common for people who work in Codex to also play an important role in bilateral and
plurilateral trade. New Zealand can strengthen the direct relationship with countries of
increased trade importance through collaborative engagement on Codex work of mutual interest.
Relationships can also be strengthened indirectly through encouraging countries to become more
familiar with and more committed to Codex standards and principles. This indirect approach
will influence trading partners to take more account of Codex standards, or the trade principles
underpinning Codex (and other WTO international standards setting bodies), when developing
trade agreements.
8 Ministry for Primary IndustriesImplementation strategies and actions
31 Strengthen dialogue and communication with strategic partners to advance common interests and
promote consensus based solutions:
• Work closely with traditional partners and pursue common strategies through teleconferences
and pre-session meetings.
• Forge closer links with the enlarged European Union in areas of mutual interest and pursue
opportunities for collaborative work on international standards.
• Pursue new relationships particularly with members of the Asian region to support
development and uptake of Codex standards.
32 Support international harmonisation and sound food regulation through contribution to bilateral/
multilateral capacity building initiatives:
• Provide mentoring support and guidance to developing countries particularly in the South West
Pacific region to strengthen national capacities for food regulation and standards development
based on Codex.
• Contribute New Zealand expertise to bilateral and multilateral capacity building programmes
on Codex and food regulation in line with our international obligations and broader national
priorities.
33 Support incorporation of Codex references into bilateral and plurilateral trade agreements and
implementing arrangements:
• Seek opportunities to promote the concept of incorporation of Codex references in bilateral
and plurilateral agreements in both formal and informal settings within Codex.
• Collaborate on Codex work of mutual interest with countries with whom New Zealand has
established or is developing trade agreements.
• Encourage partner or prospective partner countries to become more familiar with and more
committed to Codex standards and principles.
NEW ZEALAND’S STRATEGIC OBJECTIVES IN CODEX: 2015 - 2020 9Strategic Objective 3:
Promoting a strong, efficient and responsive Codex
Rationale
34 While good progress has been made in recent years to improving its structures and processes,
Codex remains a rules based organisation with inadequate flexibility to respond expeditiously on
current and emerging issues. There are two major factors that have an impact on the efficiency
and responsiveness of the Codex. Firstly New Zealand sees a continuing need to strengthen the
critical review processes as a means of managing the workload and ensuring efficient use of
the limited resources of the Codex and its membership. This won’t be easy particularly given the
growth in membership and greater diversity of needs and expectations with regard to scope and
content of standards, including increased demand for qualitative standards as opposed to food
safety standards or standards aimed at greater trade efficiency.
35 Secondly greater organisational agility is a critical issue for Codex. While much of the strength of
Codex derives from its transparency and inclusiveness there is a clear need to:
• re-examine its work management structures and processes (including the use of information
technology and web based systems for communication) to achieve greater efficiencies during
the process of standards development;
• review the rigid rules around committee structures and communication processes which are
not conducive to efficient and expeditious consideration of issues that straddle one or more
committees;
• promote pragmatic approaches and, where necessary, changes to rules of procedure to
improve responsiveness and efficiency.
36 While Codex enjoys a high degree of autonomy in terms of its standards setting functions, it
does rely heavily on FAO and WHO for financial support for scientific risk assessment activities.
Provision of scientific advice when required is crucial to timely decision making and advancement
of the Commission’s work programme. New Zealand will continue to work with other members
and pursue options for greater security of funding for these core activities.
Implementation strategies and Actions
37 Support continuous review and improvement of Codex processes for standards development
including more flexible arrangements for collaboration between committees:
• Support inter-sessional work through physical and electronic working groups to advance work.
• Advocate for simplified procedures for dealing with issues that require co-ordination across
committees.
• Support use of simplified/accelerated step process to advance work.
38 Support collaboration between Codex and other international standards setting bodies:
• Support systematic collaboration between Codex and the OIE to ensure that the outputs of the
two organisations are aligned and address food safety and health protection issues across the
food chain.
39 Support closer collaboration and co-operation between FAO, WHO and other multilateral food
safety partnerships and programmes.
40 Submit ideas and proposals, at parent body level, to streamline procedures and funding
commitments for Codex and related programmes.
10 Ministry for Primary IndustriesAppendix 1:
Structure of the Codex Alimentarius Commission
CODEX ALIMENTARIUS COMMISSION
Executive Committee Codex Secretariat
Ad hoc Regional
General Subject Commodity Intergovernmental Task Co-ordinating
Committees Committees Forces Committees
Meat Hygiene
Food Additives
(New Zealand) Africa
(China)
adjourned
Food Hygiene Milk and Milk Products Asia
(USA) (New Zealand)
Food Labelling
Fish and Fishery Products Europe
(Canada)
(Norway)
General Principles Fresh Fruits and Vegetables Latin America and the
(France) (Mexico) Caribbean
Methods of Analysis Processed Fruits and
Near East
and Sampling Vegetables
(Hungary) (USA)
Nutrition and Foods for Cocoa Products and North America and the
Special Dietary Uses Chocolates Southwest Pacific
(Germany) (Switzerland) adjourned (NASWP)
Pesticide Residues Fats and Oils
(China) (Malaysia)
Food Import and Export
Inspection and Certification Sugars
Systems (Australia) (Colombia)
Contaminants in Food Cereals, Pulses &
(Netherlands) Legumes
(United States)
Residues of Veterinary Natural Mineral Waters
Drugs in Foods (Switzerland)
(USA) adjourned
Vegetable Proteins
(Canada) adjourned Note:
1. Regional Co-ordinator positions rotate among members of the
regions. Vanuatu is the Regional Co-ordinator for the NASWP
region for the 2015-2017 period.
Spices and Culinary Herbs 2. As at 1 July 2015 there were no active Ad hoc
(India) Intergovernmental task forces.
NEW ZEALAND’S STRATEGIC OBJECTIVES IN CODEX: 2015 - 2020 1112 Ministry for Primary Industries
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