原文标题：食品安全责任共担——探讨不断发展的中国跨境食品贸易监管框架
作者：
1. 江伊凡 - 亚洲食品工业协会（FIA）科学与法规事务总监
2. Patrik Jonasson – 国际物品编码组织（GS1）公共政策总监、FIA电子商务工作组联合主席
(Please go to the end for the English version of this article.)
中国监管框架正在逐渐落实进出口食品安全管理责任共担机制，加大对可追溯性的关注力度。如今正是政府和食品行业携手合作的好时机，双方应共同努力，促进贸易，打造有韧性且可持续的供应链，同时确保不断发展的监管框架为行业创造有利条件。
随着跨境食品贸易管制相关监管体系的快速发展以及政府间组织发起种种倡议，人们开始关注食品安全合作和跨境商品追溯的迫切需求。亚洲食品工业协会 (Food Industry Asia，以下简称FIA) 密切关注事态发展，同时充当行业与政府之间的桥梁，积极推动利益相关者开展对话，确保在亚太地区建立对行业有利的监管框架，保证食品的安全和产业可持续发展。
极具影响力的发展成果包括由 21 个经济体组成的亚太经济合作组织食品安全合作论坛 (APEC-FSCF)。中国率先实施的一项举措是，积极制定战略，促进该地区落实进出口食品安全管理责任共担。
这种责任共担的思路正日益影响中国政府的食品安全与进口食品监管策略。这一策略与中国现有的进口与国产食品安全措施相辅相成，要求审查境外食品安全管理制度以及可追溯性和召回能力等。
自 2015 年 10 月《中国食品安全法》生效以来，中国制定了新的监管要求。《食品安全法》及其实施条例以及中国海关总署随后发布的一系列公告进一步强化了这些措施。中国提高食品安全，关键是要加强产品与过程监管，让可追溯性和产品的及时召回成为对国内外企业的明确要求。
特别是《食品安全法》第 42 条规定：“食品生产经营者应当建立食品安全追溯体系，保证食品的可追溯性。国家鼓励食品生产经营者采用信息化手段采集、留存生产经营信息，建立食品安全追溯体系”。
随后，根据中华人民共和国国务院令第 721 号 (2019)，中国公布了修订后的《中华人民共和国食品安全法实施条例》，其中第 18 条规定，食品生产经营者应当建立食品安全追溯体系，依照食品安全法的规定，如实记录并保存进货查验、出厂检验、食品销售等信息，保证食品的可追溯性。
这些条例可能会对出口商产生影响，而且海关已明确要求，可追溯性要求也适用于跨境电子商务贸易。海关总署公告第 194 号 (2018) 第 26 条第 3 款规定：“跨境电子商务企业……应当建立健全的商品溯源机制，并承担质量安全主体责任。鼓励跨境电子商务平台企业建立并完善进出口商品安全自律监管体系。”值得注意的是，“自律”一词即已暗示责任共担的思路。
2021年4月，中国海关总署发布了新的248号令：《进口食品境外生产企业注册管理规定》。这些新规定旨在落实 2015 年《食品安全法》第 96 条的规定，从根本上确保向中国出口食品的境外出口商或代理商以及进口食品的进口商向有关部门备案登记。
与之相关的是中国海关总署同期颁布的第 249 号令：《进出口食品安全管理办法》。新法令涉及各方各面的要求，例如，境外国家（地区）的食品安全管理体系评估和审查，包括可追溯性和召回能力、境外设施注册、进出口商和代理商备案、检疫检验、产品标签和食品安全风险警示通报等要求。第 13 条重点规定了境外国家和地区食品安全管理体系的评估和审查，包括食品安全防护、追溯和召回体系。
FIA和 GS1持续与食品行业开展对话，旨在了解这些要求对他们的业务运营有何影响。食品出口商有望在运营层面实现新规定中提出的多项要求。但是，了解这些要求的执行情况，以及实现跨境贸易的可追溯性（例如产品识别和数据共享）等实际问题的落实情况，也同样重要。同时，我们需要加强政府和行业部门之间的国际合作，在国际食品贸易环境中积极落实食品安全管理责任共担机制。致力于推动亚太区域监管和行业层面合作的过程中，我们观察到其中一项重要进程是各界对于行业参与带来的价值的认可。我们深信致力于通过合作来促进贸易，建立有韧性且可持续的供应链，同时协助制定有利于行业发展的监管框架。
A Shared Responsibility for Food Safety: Exploring the evolving regulatoryframework for China's cross-border food trade
The regulatory framework in China is moving towards a SharedResponsibility for the management of the import and export food safety with anexpanded focus on traceability – now is the time for government and foodindustry to work together to facilitate trade and build resilient andsustainable supply chains, while ensuring that evolving regulatory frameworksare conducive for business.
Regulatory developments for cross-border food trade controls are evolvingat a fast pace, paired with initiatives led by inter-governmentalorganisations, drawing attention to the urgent need for food safetycollaboration and cross-border traceability. At Food Industry Asia we aremonitoring the developments while acting as the bridge between industry andgovernment by facilitating dialogue among stakeholders to ensure that we have aregulatory framework in Asia-Pacific that is conducive for business, whileensuring safety and sustainability.
A potentially very impactful development is the work under the Asia –Pacific Economic Cooperation – Food Safety Cooperation Forum grouping of 21economies, better known as APEC-FSCF. One initiative led by China is thedevelopment of strategies promoting the application of shared responsibilityfor the management of import and export food safety in the region.
This thinking of shared responsibility is increasingly informing theChinese government’s approach to food safety, and supervision of imported food.While the approach is balanced with the food safety measures adopted in Chinaapplying to both imported, and domestically produced food, the requirementsinclude review of the food safety management system of foreign countries andterritories and also traceability and recall capabilities.
Since October 2015 when the China Food Safety Law came into force, we haveobserved new and important regulatory requirements in China. They have beenstrengthened by a range of implementing regulations to the Food Safety Law,enhanced by more recent announcements from the General Administration ofCustoms China. A key aspect of this drive to improve food safety in China, isbetter product and process supervision, with requirements for traceability andrecall readiness that have become explicit requirements for domestic as well asoverseas businesses.
Notably the Food Safety Law article 42 states that “food producers andoperators should establish food safety traceability system to ensure the foodtraceability. The State encourages the food producers and operators to captureand save the production and business information by means of informationtechnology to establish the food safety traceability system”.
This can be seen as the real start gun hinting at what was to come. It wasfollowed by the Decree of the State Council of the People's Republic of ChinaNo. 721 (2019), for the Implementation of the Food Safety Law of the People'sRepublic of China. Article 18 stated that food production and businessoperators shall establish a food safety traceability system, and truthfullyrecord and maintain information such as inspections of incoming goods, factoryinspections, and food sales in accordance with the provisions of the FoodSafety Law to ensure food traceability.
While these articles likely had impact on exporters, the requirements fromCustoms have made it clear that the traceability requirements also includecross-border e-commerce trade. General Administration of Customs Notice 194(2018), article 26 paragraph 3 states that “Cross-border e-commerceenterprises…shall establish a sound product traceability mechanism and assumethe responsibility of quality and safety subjects. Encourage cross-bordere-commerce platform enterprises to establish and improve the self-regulatorysystem for the safety of import and export commodities.” Worth noting the useof the words self-regulatory, which was already hinting at the thinking ofshared responsibility.
In December 2020, China notified the WTO on the new Regulations on theRegistration and Administration of Overseas Manufactures of Imported Food.These new regulations are aiming to implement article 96 of the 2015 FoodSafety Law, which is essentially there to ensure that overseas exporters oragents exporting food to China and importers of imported food are put on recordand registered with the authorities.
The new requirements aiming to implement article 96 will come into forcein 2022, and a key aspect of this is the General Administration of Customs ofChina Decree 249: Administrative Measures on Import and Export Food Safety. Thenew Decree covers a broad range of requirements such as the evaluation andreview of foreign food safety management systems including requirements fortraceability and recall capabilities; overseas facilities registration; recordfiling by importers, exporters, and commercial agents; quarantine andinspection; product labelling; and food safety risk alerts among others.Article 13 focuses on the evaluation and review of the food safety managementsystem of foreign countries and regions including the food safety protection,traceability and recall system.
At Food Industry Asia and at GS1 we continue to have a dialogue with ourfood industry members to understand how these requirements are impacting theirbusiness operations. We are expecting that many of the requirements are beingimplemented on an operational level by food exporters. But it is important toalso understand how the requirements are being enforced, and how practicalissues, to enable the required cross-border traceability, like productidentification and data sharing, is being carried out. Another important issueis the need for stronger international collaboration between the government andindustry sectors to address the shared-responsibility on food safety managementunder the context of international food trade.
Working on regional collaboration, one key thing we have seen evolve, isthe recognition of the value industry brings to the table. At Food IndustryAsia and GS1 Asia – Pacific our member companies in Asia are at the core of thework we are doing, and we want them to have successful operations with easymarket access across borders. We are focusing on collaboration to facilitatetrade, build resilient and sustainable supply chains, while helping makeevolving regulatory frameworks conducive for business.
This article is co-Authored by:
YiFan Jiang: Head of Science and Regulatory Affairs, Food Industry Asia.
Patrik Jonasson: Directorfor Public Policy for GS1, and co-Chair for e-commerce at Food Industry Asia.
“亚洲食品工业协会（Food Industry Asia, 简称FIA）是一个面向亚太地区的食品行业协会。我们的宗旨是为健康、繁荣的亚洲建立一个充满活力的食品饮料行业。作为行业、政府信赖的伙伴，FIA作为区域枢纽中心，为行业和政策制定者提供基于科学的建议和多方合作，促进构建行业发展的生态圈。目前我们的工作重心主要在营养健康、食品贸易和安全、可持续发展。”
国际物品编码组织(GS1)覆盖全球115个成员组织，服务150多个国家和地区，拥有超过250万商品条码企业用户，全球每天扫描商品条码的次数达60亿次，每年为全球快消行业节省3000亿美元。