eu legislative framework for food and plant...
TRANSCRIPT
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@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
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@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
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@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/
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2. State of play: the European Market for F&V imports, key trends and figures
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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 €
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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
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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
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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
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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)
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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
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High complexity of drivers into play…
Consumption
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3. Accessing the European market: The European Plant Protection and Plant
Health regimes
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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
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… and conflicting interests and concerns
Science vs. “emotion” an ongoing debate
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3.1 Accessing the European market: The European Plant Protection regime
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Business implications
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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
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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
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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
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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
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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
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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.)
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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?)
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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
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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
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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
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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/
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3.2 Accessing the European market: The European Plant Health regime
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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%
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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
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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
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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)
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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
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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
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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
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4. Accessing the European consumer: challenges and opportunities in the era of
sustainability
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@Freshfel
A challenging debate for the sector
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But also an opportunity! F&V at the heart of the ‘planetary health diet’
Source: The EAT-Lancet Commission on Food, Planet & Health
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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!
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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
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@Freshfel
Keep calm and… continue bringing HEALTHY, TASTY, and
FRESH F&V to the world!
Thank you ! Natalia Santos-Garcia Bernabe
Freshfel Europe [email protected]