@Freshfel

Natalia Santos Garcia Bernabe

Freshfel Europe 10 April 2019

EU Legislative Framework

for Food and Plant Safety Key trends, challenges and opportunities for F&V imports

@Freshfel

Interventions’ structure

1. About Freshfel Europe

2. State of Play: The European Market for imports, key trends and figures

3. Accessing the European market : 1. Plant Protection in the EU: current system, challenges and next steps 2. The new Plant Health regime in the EU: an open system subject to conditions

4. Accessing the European consumer: challenges and opportunities in the era of sustainability

@Freshfel

1. About Freshfel Europe

European fresh fruit and vegetables

Association

Brussels- based Secretariat

Across the EU and across the chain from production

down to retail

Membership driven => Association and

private Cie

Europe and beyond

Key policy areas : Agriculture, Trade,

Food and plant safety, Nutrition and

health , R&I

Platform for the sector

www.freshfel.org

www.freshquality.eu

www.enjoyfresh.eu

http://www.freshfel.org/http://www.freshquality.eu/http://www.enjoyfresh.eu/

@Freshfel

@Freshfel

2. State of play: the European Market for F&V imports, key trends and figures

@Freshfel

The European Market: open for business

Import 130 partners

15 Million T (16 billion €)

Export 145

destinations 5,1 Million T

(4,4 billion €)

EU fresh Production: 75 Mio T

( >60% consumed in MS of production)

Intra-trade 30 million T (30 billion €)

> 5 mio jobs > 200 billion €

@Freshfel

Overall EU Import trends: When will growth peak?

0

2,000,000

4,000,000

6,000,000

8,000,000

10,000,000

12,000,000

14,000,000

16,000,000

18,000,000

2013 2014 2015 2016 2017 2018

Volume in T Value in billion Euro

Result 2017:

15,1 mio. T

16,1 billion €

Trends for 2018:

Jan-Sep comparison 2017 vs. 2018: 11.57 mio. T vs. 12.3 mio. T 6 % growth rate from 17-18

Average 5 year growth rate 2,9%

Estimated outcome 2018: 15,76 mio. T

@Freshfel

Peru imports into the EU

0.00

200,000.00

400,000.00

600,000.00

800,000.00

1,000,000.00

1,200,000.00

2010 2011 2012 2013 2014 2015 2016 2017 2018

Peru F&V imports into EU28

Total volume (T) Total value (thousand Euros)

Volume by x2.5(+150%) Value almost x3 (+190%)

Avocados 34%

Bananas 18%

Mango 14%

Citrus 11%

Grapes 9%

Asparagus 4%

Onions and

shallots 4%

Tamarinds, passion fruit

and other 3%

Cranberries & other

vaccinium fruits

3% Peas 0%

Pumpkins 0%

Other 0%

Peru-EU imports by product

@Freshfel

EU28 import trends for citrus

Top EU Suppliers (2017, T) South Africa 742,576.20

Egypt 286,853.00

Morocco 275,711.40

Turkey 210,674.40

Argentina 199,104.90

China 110,021.90

Brazil 109,415.10

Israel 107,048.50

Peru 70,275.20

Mexico 69,889.00

Uruguay 38,275.30

Zimbabwe 34,519.80

United States 24,869.10

Tunisia 17,253.50

Chile 14,612.20

Colombia 8,027.80

Viet-Nam 4,804.80

Swaziland 4,388.90

Guatemala 2,661.10

Honduras 2,620.80

2017: 2.34 mio. T (+3% vs. 2016) 2018*: 2.54 mio. T (+8% vs. 2017)

0

500,000

1,000,000

1,500,000

2,000,000

2,500,000

3,000,000

2010 2011 2012 2013 2014 2015 2016 2017 2018

EU28 citrus imports by variety (T)

Total volume Oranges (incl.wilkings) Lemons and limes

Grapefruit Other citrus fruit Mandarins and clementines

@Freshfel

Peruvian citrus imports into the EU28

Overall Trends:

Overall growth of 80% in volume and 260% in value since 2010 Estimated outcome 2018:

71,988 Tonnes (+2% vs. 2017) 74.5 mio. Euros (-4% vs. 2017)

0

10,000

20,000

30,000

40,000

50,000

60,000

70,000

80,000

90,000

2010 2011 2012 2013 2014 2015 2016 2017 2018*

Peru import trends to EU28 (2010-18)

Total volume (T) Total value (thousand euros)

56% 23%

15%

4% 2%

Main varieties imported to EU28

Satsumas

Oranges

Wilkings

Clementines

Lemons

More than half

to UK (aprox. 40,000 T)

@Freshfel

F&V consumption: a key challenge for the EU28 market

Net EU consumption per capita (gr/day)

Current status: 22 out of 28 MS below 400 gr/day

Only BE, CY, GR, IT, PT and RO consume over 400 gr/day/capita

@Freshfel

High complexity of drivers into play…

Consumption

@Freshfel

3. Accessing the European market: The European Plant Protection and Plant

Health regimes

@Freshfel

EU Food Safety & Quality: Balancing conflicting policy objectives…

• The search for coherence among EU policy objectives: • Public Health & Food Law – Hazard (Reg. 1107/2009 on PPPs) vs. Risk (Reg. 396/2005 on MRLs ) • Research & innovation: the future of GMO legislation & new breeding techniques • Biosecurity: plant health and the protection of biodiversity • Compliance vs. practice • SDG – EU commitment to mainstream 17 goals • Environment – Soil protection, waste, ‘circular’ economy & pastic usage reduction, organics

@Freshfel

… and conflicting interests and concerns

Science vs. “emotion” an ongoing debate

@Freshfel

3.1 Accessing the European market: The European Plant Protection regime

@Freshfel

Business implications

@Freshfel

Reality Check: Compliance, an increasing challenge?

RASFF NOTIFICATIONS 2018:

• Increased controls for non-compliant origins (Reg. 669/2009 + emergency measures)

– From 5% to 50% frequency of physical and identity checks

– Biannual review

– Origin hotspots: Turkey, China, South East Asia, Dominican Republic, Uganda

– Commodity hotspots: Sweet and chilli peppers, pomegranates, beans

– Citrus in the list: Lemons from Turkey (10%)

– Ongoing reform: debate about implications for developing countries and arbitration made on origin vs. operator

@Freshfel

RASFF TRENDS FOCUS: Citrus

Rapid Alert citrus notifications by type (2016-18)

Varieties 2016 2017 2018 Total 3

years

Mandarins 4 2 0 6

Lemons 11 5 12 28

Grapefruit 1 0 3 4

Pomelo 3 0 2 5

Limes 1 1 0 2

Sultanas 2 1 0 3

Oranges 3 5 5 13

Total by year 25 14 22 61

Mandarines 10%

Lemons 46%

Grapefruit 7%

Pomelo 8%

Limes 3%

Sultanas 5%

Oranges 21%

Notifications 2018-16 by citrus variety

Argentina 1%

Brazil 1%

China 8%

Egypt 5%

Iran 2%

Israel 2%

Italy 2%

Lebanon 3% Marocco

5%

South Africa 5%

Spain 3%

Turkey 56%

United States 5%

Vietnam 2%

Notifications 2018-16 by origin

@Freshfel

RASFF TRENDS FOCUS: Peru

PERU RAPID ALERT OVERVIEW 2018-2016

Product Category Product Notification Country Issue code Issue

2018

Fruit Table grapes 17/12/2018 NL Pesticides ethephon (1.5 mg/kg - ppm) in table grapes from Peru, via Chile

Vegetables Green asparagus 10/08/2018 FR Heavy metals cadmium (0.179 mg/kg - ppm) in green asparagus from Peru, via Spain

Vegetables Asparagus 24/07/2018 ES Heavy metals cadmium (0.27 mg/kg - ppm) in asparagus from Peru

Vegetables Asparagus 18/07/2018 ES Heavy metals cadmium (0.28 mg/kg - ppm) in green asparagus from Peru

Vegetables Asparagus 18/06/2018 NL Pesticides methomyl (0.15 mg/kg - ppm) in asparagus tips from Peru

Fruit Table grapes 15/03/2018 IT Pesticides methomyl (0.087 mg/kg - ppm) in table grapes from Peru

Fruit Table grapes 15/02/2018 NL Pesticides

methomyl (0.34 mg/kg - ppm) and dimethoate (0.20 mg/kg - ppm) and unauthorised substance omethoate (0.045 mg/kg - ppm) in

grapes from Peru

2017

Fruit Mango 12/04/2017 NL Pesticides chlorpyrifos (0.076 mg/kg - ppm) in mango from Peru

2016

Vegetable Asparagus 30/05/2016 NL Pesticide chlorpyrifos (0.18 mg/kg - ppm) in green asparagus from Peru

Vegetable Asparagus 12/05/2016 BE Heavy metals cadmium (0.16 mg/kg - ppm) in asparagus from Peru

Fruit Mango 08/04/2016 NL Pesticide tebuconazole (0.64 mg/kg - ppm) and unauthorised substance

carbendazim (0.71 mg/kg - ppm) in mango infoca from Peru

Fruit Table grapes 18/01/2016 NL Pesticide methomyl (1.5 mg/kg - ppm) in grapes from Peru

• Peru represents only 3% of total rapid alert interceptions in 2018 and 0.4% in 2017 • Main issues: PPPs & Heavy metals

@Freshfel

Monitoring a changing environment: the key to sustainable market access

KEY OFFICIAL MONITORING TOOLS

1. EU Pesticide database, main source to control the calendar of renewals of authorisations and MRLs

2. EFSA opinions, publicly available science-based reports on new MRLs proposed from EU risk-assessor

3. WTO SPS & TBT notifications: check out of new MRLs before adoption & submission of comments

4. Short shelf life of F&V, an advantage to keep up with changes!

http://ec.europa.eu/food/plant/pesticides/eu-pesticides-database/public/?event=homepage&language=ENhttp://ec.europa.eu/food/plant/pesticides/eu-pesticides-database/public/?event=homepage&language=ENhttp://ec.europa.eu/food/plant/pesticides/eu-pesticides-database/public/?event=homepage&language=ENhttp://ec.europa.eu/food/plant/pesticides/eu-pesticides-database/public/?event=homepage&language=ENhttp://ec.europa.eu/food/plant/pesticides/eu-pesticides-database/public/?event=homepage&language=ENhttps://www.efsa.europa.eu/en/publicationshttp://spsims.wto.org/en/Notifications/Searchhttp://spsims.wto.org/en/Notifications/Searchhttp://tbtims.wto.org/en/Notifications/Searchhttp://tbtims.wto.org/en/Notifications/Search

@Freshfel

MRL setting & review after EFSA’s review: key milestones

• 3-6 months: EC draft proposal & discussion in Standing Committee with Member States

• Once there is technical agreement, WTO SPS notification – 60 days

• 1-3 months: EC account of WTO SPS comments and presentation of final proposal to vote

• 3-4 month: scrutiny period before publication in EU Official Journal

• 20 days: entry into application

• 6 months: grace period (could be shorter in specific and sensitive cases)

• Transitional measures: provided that the following conditions are fulfilled:

– No genotoxicity – parent compound or metabolite

– Toxicity reference values available

– No exceedance of ADI and ARfD

@Freshfel

Main reasons for ASs non-renewal & implications for MRLs

Manufacturer initiative

• ASs not re-submitted for renewal or withdrawal of application prior to EFSA

conclusion • Based on manufacturers’

economic and safety considerations

• MRLs: CXLs and ITs to be maintained

Consumer, user, or bystander health

concerns

• ASs falling under the cut-off criteria or other

human health concerns • MRLs: unclear future of CXLs

and ITs

Reasons other than human health

• Other environmental considerations into play (e.g.

soil, water, bees, etc.) • MRLs: CXLs and ITs expected

to be maintained

The future of MRLs of non-renewed ASs: In practice, a case by case arbitration based on several factors: • Priority of the file & health concerns at stake • EC resources capacity • Political pressure (NGO/civil society concerns, EU MS priorities, etc.)

@Freshfel

Case studies – PPPs & MRLs

TBZ (lack of evidence provided by

manufacturer)

Prochloraz (lack of dossier for an MRL)

DPA (cross contamination &

temporary MRL)

Imazalil (new MRL of 4 mg/kg for

grapefruit & orange and 5 for mandarin, lemon & lime

pending genotoxicity data)

Chlorate (Treated as PPP instead of

biocidal product)

Iprodione (Cut-off criteria)

Dimethoate (National protectionism?)

@Freshfel

What next: PPPs & MRLs REFIT findings

427

432

443

467

483

490

494

493

2011

2012

2013

2014

2015

2016

2017

2018

Total number of approved ASs in EU28 = +13%

4

8

12

6

15

10

4

6

2011 2012 2013 2014 2015 2016 2017 2018

Number of applications for new ASs

Category New ASs since 2011 No longer approved in 2018

Fungicide 34 8

Herbicide 9 13

Insecticide and acaricide 24 4

Other 11 7

@Freshfel

@Freshfel

REFIT findings: future scenarios

Keeping the Status quo

• The EC can conclude that, despite “gaps found” in REFIT, no action will not be taken

• Current framework to stay

Closing loopholes

• The EC can decide to propose some specific amendments to address grey zones or inconsistencies found.

Legislative reshuffle

• The EC can decide to conduct a full review of the existing framework

• Long legislative procedure to involve all EU institutions

• Politically very sensitive

• Civil society pressure

• To depend on the priorities of the new Commission

Political & Technical

considerations

@Freshfel

Private standards rationale vs. pesticide regulation

Loopholes in legislation

(e.g. ARfD vs. MRL)

Lab testing uncertainty Lack of confidence in legislation

(limited communication) Brand protection & NGOs

scrutiny

Multi-residue effect – lack of scientific knowledge

External communication on pesticide usage (NGO- ECPA) are encouraging private standards ! Official communication by authorithies should be therefore to provide confidence

@Freshfel

Looking for alternatives to ASs: The EUFRUIT project

THE PROJECT

• Fruit in general, but specific focus on pome fruit

• 21 partners, 12 European countries

• To bridge the gap between research institutes and between research and sector

• Concrete result of Task Force and SIRA

4 Work Packages alongside different themes: Performance of new fruit varieties Reduction of pesticides Improvement of fruit storage methods Secure sustainable fruit production

Knowledge Platform: http://kp.eufrin.org/ : • An overview of all new knowledge from fruit research and

best practices at European level, related to the 4 themes • Easy search function, open to the public

http://kp.eufrin.org/http://kp.eufrin.org/http://kp.eufrin.org/http://kp.eufrin.org/http://kp.eufrin.org/http://kp.eufrin.org/http://kp.eufrin.org/

@Freshfel

3.2 Accessing the European market: The European Plant Health regime

@Freshfel

State of play: 2018 Europhyt hotspots

KEY TAKEAWAYS – 2018 REPORT • Most interceptions in :

• Dominican Republic (112) • Uganda & Kenya (89 each) • Israel (87) • Nigeria (85) • Malaysia (72) • Suriname (68)

• FCM: 102 interceptions in fruit, mostly in

capsicum and citrus from African partners (40 in Uganda, 14 in SA and 12 in Kenya)

• Fall armyworm: 35 interceptions in fruit in Africa and South America

• Mangoes: 64 interceptions in Africa, mainly non-European flies

0

500

1,000

1,500

2,000

2,500

3,000

2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019

Number of HO interceptions - by year (Europhyt)

+15%

@Freshfel

State of play 2: 2018 Europhyt hotspots- citrus

Eurostat SH shipping data to EU

Reporter EU 2018 2017 2018 2017

Total 419.116,00 583.308,90 570.394,00

581.055,20

South Africa 317.503,90 443.415,00 442.588,00

439.588,00

Argentina 34.224,20 39.221,00 44.753,00 39.906,00

Zimbabwe 27.146,20 32.578,00 27.146,20 32.578,00

Uruguay 14.843,80 25.845,20 30.477,00 26.739,00

Brazil 13.415,20 28.158,10 13.415,20 28.158,10

Peru 8.361,30 11.551,30 8.361,30 11.551,30

Swaziland 2.910,30 2.022,80 2.910,30 2.022,80

Chile 711,10 517,50 743,00 512,00

CITRUS FOCUS 2018

• Brazil: total of 28 interceptions out of which 24 CBS on oranges, 1 on lemon and 1 on grapefruit, both on CBS, as well an 2 on limes with citrus canker.

• Argentina:22 interceptions in total, out of which 12 on lemons (8 on CBS and 2 on canker), 9 on oranges (8 on CBS) and one CBS on grapefruit

• South Africa: a total of 12, 10 on oranges with FCM, and only 2 on CBS, plus 2 FCM interceptions on grapefruit and one FCM interception on clementine;

• Peru: no interceptions in citrus (24 other interceptions, of which 9 in mangoes, 12 in asparagus, and 3 in Soursop

@Freshfel

Plant Health Regulatory developments

2018 & 2019

Preparing the new regime

(Regulation 2016/2031)

• Art 42 - High risk products, PRA needed

(momordica)

• Art 72 - all products previously with PC + 6 new regulated F&V + 5% reduced physical checks

• Art 73 - PC for all F&V with exception (bananas, pineapples, durinas, coco, figs) + 1% minimum physical checks

• OCR Reg. 2017/625 – new official controls rules for more harmonised approach + digitalisation (Integrated Management System – IMSOC)

• Coming into force on 14 December 2019

Managing the current regime

(Directive 2000/29)

• New regulated pests & reporting obligations:

additional mitigation measures introduced in Annex IV for apples, pears, mango, prunus, capsicum, citrus => application in second semester 2019 –new reporting obligations similar to FCM

• New regulated F&V: introduced in Annex V B (kiwi, papaya, strwberrries, avocadoes, table grapes, raspberies)

• New emergency measures: for spodoptera frugiperda (fall armyworm) until May 2020 for Africa & America – aubergines, capsicum, bitter tomato & momordica

@Freshfel

Focus I: new obligations from Annexes I to V of Directive

2000/29/EC on citrus fruit

PART A: ‘Placing further reporting obligations on third countries’ • NPPOs to notify ‘freedom’ status to the EC (country, region or production site) or; • Notification in advance of effective mitigation measures (treatment or ‘in the field’ methods)

@Freshfel

A ‘risk based’ approach, based on origin compliance:

reduced checks VS. safeguard measures

Reduced checks: annual list with goods-origin combinations, based on previous records of compliance.

• Variable rates between 1-100% pending adjustment to ensure a minimum of 200 consignments per year inspected.

• Since 2015, all citrus varieties from Peru subject to minimum of 10% checks (lower range)

General rule: all regulated F&V (Annex V Directive 2000/29/EC) must be inspected on arrival

Safeguard measures: • Citrus black spot: Phyllosticta citricarpa (McAlpine) Van der Aa

as regards citrus fruit from certain third countries - Decision (EU) 2016/715, as amended by Commission Implementing Decision 2019/449 – South Africa, Argentina, Uruguay and Brazil

• Fall armyworm: spodoptera frugiperda for Africa & America, as

regards aubergines, capsicum, bitter tomato & momordica - Commission Implementing Decision (EU) 2018/638

https://ec.europa.eu/food/sites/food/files/plant/docs/ph_biosec_trade-non-eu_prods-recom-reduced-ph-checks_2019.pdfhttps://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:02016D0715-20180120https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:02016D0715-20180120https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:02016D0715-20180120https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:02016D0715-20180120https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:02016D0715-20180120https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:02016D0715-20180120https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:02016D0715-20180120https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32019D0449https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32019D0449https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32019D0449https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32019D0449https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32019D0449https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32019D0449https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32019D0449https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32019D0449https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32019D0449https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32018D0638https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32018D0638https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32018D0638https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32018D0638https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32018D0638https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32018D0638https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32018D0638

@Freshfel

Close monitoring, reporting & reactivity:

the key for sustainable market access

EUROPHYT = notification and rapid alert system • Web-based network and database.

• Monthly and annual reports of interceptions

• Towards digitalisation: new EU official controls rules & IMSOC system – an opportunity for faster & more complete reporting

• Engagement with EU authorities and reactivity to interceptions remains key

ALERT LIST

• List released monthly

• Countries with more than 5 interceptions in the last 12 months.

• Aimed at drawing attention of relevant authorities and stakeholders

https://ec.europa.eu/food/plant/plant_health_biosecurity/europhyt/interceptions_enhttps://ec.europa.eu/food/plant/plant_health_biosecurity/europhyt/annual_reports_enhttps://ec.europa.eu/food/sites/food/files/plant/docs/ph_biosec_trade-non-eu_alert-list_201803-201902.pdf

@Freshfel

Country of export Total HO interceptions by country (change from previous month)

Commodities intercepted most with HO

HO interceptions by commodity

Main HOs intercepted

Interceptions by HO

CHINA 89 (-1) Citrus spp. 24 Fruit flies 21

BRAZIL 46 (+2) Citrus spp. 28 Phyllosticta citricarpa 26

SOUTH AFRICA 39 (+1) Citrus spp. 12 Thaumatotibia

leucotreta 9

ARGENTINA 24 (0) Citrus spp. 21 Phyllosticta citricarpa 17

INDONESIA 15 (+1) Citrus spp. 5

URUGUAY 5 (0) Citrus spp. 5

Alert list – Hotspots for

citrus

@Freshfel

4. Accessing the European consumer: challenges and opportunities in the era of

sustainability

@Freshfel

A challenging debate for the sector

@Freshfel

But also an opportunity! F&V at the heart of the ‘planetary health diet’

Source: The EAT-Lancet Commission on Food, Planet & Health

@Freshfel

The future of the sustainability debate: towards a proliferation of

standards/schemes at all levels?

GRASP Rainforest

Fairtrade WWF

BSCI Code of Conduct

SMETA

Sedex

National standards

International standards

National legislation

Challenges with: • Proliferation & multiplication of costs • Balancing national rules and private requirements • Add-ons debate (e.g. TR4)

55 standards for fresh F&V!

@Freshfel

Single-Use Plastics (SUP) Directive: The future is here

• Two levels of action, SUP divided in two categories: • Prohibition: food containers made of polystyrene,

cutlery, cotton bud sticks, etc. • Reduction of consumption: food containers, etc.

• No concrete, binding targets of reduction for EU/MSs

• Timeline: • 2021: entry into force of SUP Directive • 2026: review – potential changes in current

categories + setting of EU targets

@Freshfel

Keep calm and… continue bringing HEALTHY, TASTY, and

FRESH F&V to the world!

Thank you ! Natalia Santos-Garcia Bernabe

Freshfel Europe natalia@freshfel.org