Food Standards News 38
July 2002
Full colour version [ PDF format 578kb ]
In this issue
From the Managing Director's Desk
Food Standards Australia New Zealand launched
Food Standards Council agrees to stock-in-trade provisions
Market research on food labelling
What the change to FSANZ means
Chief Scientist Dr Marion Healy looks at sulphite intolerances
From the Managing Director's Desk
On 1 July 2002, ANZFA became Food Standards Australia New Zealand, with additional responsibilities for primary production and processing standards, such as seafood and horticulture.
This change is part of a broader package of reforms to the food regulatory system in Australia, including the evolution of the previous Food Standards Council to the new Australia New Zealand Food Regulation Ministerial Council.
Our aim is to make the transition from ANZFA to FSANZ a seamless one. Contacts that you may have with people in ANZFA will carry over to FSANZ - while there have been changes in the Board membership, all staff continue in their previous roles. Most importantly, FSANZ will retain ANZFA's approach of transparent and objective assessment of risk for all changes to the Food Standards Code.
In May, the Food Standards Council agreed to a model for the development of primary production and processing standards for Australia, as another step in the transfer of the standard-setting process for primary products to the food regulatory system.
My initial expectation had been that most parts of primary industry would be very reluctant to have a government regulator developing mandatory standards for their operation. This was a serious misjudgement. In fact, we have had a substantial number of primary industry bodies flagging their intention of seeking the development of an industry standard.
In some cases, this reflects a recognition that the marketplace will not tolerate unsafe foods and is likely to shun an entire sector where one or a handful of companies cut corners and create food-borne illness outbreaks. For those involved in exports, unsafe products can damage the entire Australian export industry in that particular sector.
Other primary industry bodies are concerned about misrepresentation of both domestically produced and imported foods on the Australian market and wish to have standards to overcome that problem. I expect that the focus of these standards will be overwhelmingly on safety, but that there will be some limited coverage of fraud and deception and other non-safety consumer protection issues.
ANZFA had a long history of drawing heavily upon experts from within relevant scientific and technical fields in industry, academic institutions, research bodies and government. We will be applying the same principle in relation to the development of primary industry standards.
For each sector in which we undertake this work, we will establish a standards development committee which will work to the FSANZ Board and in close conjunction with relevant staff at FSANZ.
The incorporation of primary industry standards into the responsibilities of FSANZ will be another step to achieving a paddock-to-plate approach to food regulation in Australia.
The FSANZ Board
The change also brings us an expanded Board, with a number of new members with distinguished backgrounds in a range of fields who bring a new set of experiences, perspectives and expertise.
We also have the benefit of considerable continuity of membership, as seven of the ANZFA Board will continue their work on the FSANZ Board. Details of the new Board are provided in this edition.
It is with sadness that we farewell the two retiring members - the Hon Michael MacKellar and Professor Mark Wahlqvist - from the Board of the Authority. Both served with distinction on the ANZFA Board for many years. Mr MacKellar was Chairman of ANZFA from 1998. Their contributions to the development of modern, efficient and enlightened food regulation are greatly valued.
I note with pleasure Professor Wahlqvist's achievement in being included in the long and short list in The Australian Awards for Excellence in Educational Publishing for his book Food and Nutrition (Allen & Unwin).
Ian Lindenmayer
Managing Director
Food Standards Australia New Zealand launched
The new food agency - Food Standards Australia New Zealand (FSANZ) - which replaces the Australia New Zealand Food Authority (ANZFA), was officially launched in Canberra on 1 July by the Parliamentary Secretary to the Federal Minister for Health and Ageing, Ms Trish Worth.
Ms Worth said this was a very exciting occasion and the culmination of years of hard work.
'Importantly, this is a not only the launch of FSANZ, but is also the start in earnest for full implementation of the new food regulatory system. A key element of this system is the policy/regulatory split, and already there are a number of policy guidelines under development, and one, the Primary Product Standards Policy Guideline, agreed to by Ministers,' Ms Worth said.
'The new statutory Authority will have a Board with broader areas of expertise than does ANZFA. The prime function of the Authority will be to develop food standards that are to be adopted in Australia and New Zealand (within the scope of the Treaty between Australia and New Zealand) and then notify those standards to the new Australia and New Zealand Food Regulation Ministerial Council.
'These standards are to be developed based on scientific and technical criteria and in accordance with the objectives of the Food Standards Australia New Zealand Act 1991, dealing with protection of public health and safety and the provision of information to consumers.
In launching FSANZ, Ms Worth presented the New Zealand High Commission with an Australian Diplomatic Note. The Note is a formal notification to the Government of New Zealand that Australia has completed its domestic processes necessary to allow entry into force of the amendments to the Joint Food Standards Treaty. New Zealand gave its Diplomatic Note to Australia on 17 June 2002.
'New Zealand is an equal partner in the new food regulatory system, and it is appropriate that we therefore have the Te Kumete Maori or The Maori Food Bowl before us,' Ms Worth said.
'The Maori kumete food bowl is carved using traditional Maori methods. The handles represent two people and are symbolic of the indigenous cultures of New Zealand and Australia. The intricate patterns on one handle are the traditional tattoo of the Maori and the flowing patterns on the other handle are a representation of the traditional body markings of the Indigenous Australians. The arms of both handles are coming together and represent a combined effort to support a food bowl that will feed all people.
Ms Worth said the new Chairperson of FSANZ is the Hon Rob Knowles, who has a sound knowledge of food issues and government processes and an extensive knowledge of State and Commonwealth health systems, and importantly, was a member of the ANZFA Board.
Ms Worth said the Chairperson and Board members have expertise in a range of fields.
'This mix of experience and skills will be of great value to FSANZ in its important role as the food standards regulator for Australia and New Zealand,' she said.
Food Standards Council agrees to stock-in-trade provisions
Australian and New Zealand Food Standards Ministers met via teleconference last month and agreed on a number of important food issues:
Implementation of the joint Food Standards Code
On 20 December 2002, the Australian Food Standards Code (Volume 1 of the Food Standards Code) and the New Zealand food regulations will be replaced, following a two-year transition period, by a new Food Standards Code for both Australia and New Zealand.
Stock-in-trade provisions
At the Australia New Zealand Food Standards Council meeting on 24 May 2002, Ministers had indicated in-principle support for the transition arrangements concerning the implementation of the joint Food Standards Code pending a formal recommendation from the Australia New Zealand Food Authority (ANZFA) Board. Ministers confirmed that the transition period will end on 20 December 2002. They also endorsed a 12 month stock-in-trade provision for all general food products; a 24 month stock-in-trade provision for long shelf-life products; and for food packaged at the point of sale, a 12 months extension to the transition period for labelling requirements except those that are important to protect the safety of consumers.
Transitional arrangements for repeal of Volume 1 of the Food Standards Code
Ministers also agreed to include in Volume 2 of the Food Standards Code transitional arrangements for those issues remaining unresolved such as health claims; country of origin labeling; infant formula; labelling of royal jelly and other bee products; warning statements for condensed milk; modified milk and skim milk; and special purpose foods (for New Zealand only).
Primary product standards policy guideline (Australia Only)
The Council also endorsed an overarching policy guideline on primary production and processing standards. Ministers had previously endorsed both the model detailing the system and the protocol outlining the process for the development of primary production and processing standards. Food Standards Australia New Zealand (FSANZ) replaced the Australia New Zealand Food Authority (ANZFA) on 1 July 2002 and assumed responsibility for developing primary production standards for use in all Australian States and Territories.
The policy guideline prescribes that the new standards maintain Australia's safe food supply through a consistent approach across the entire food chain without being trade restrictive or by placing an excessive regulatory burden on industry.
The endorsement of the guideline is another step in the successful transfer of primary products standard setting to FSANZ. It will help ensure that, for the first time, a single national framework exists for the development of all domestic food standards covering the entire food supply chain.
Meet the new FSANZ Board
On 1 July 2002, Food Standards Australia New Zealand replaced ANZFA as the standards-setting authority for Australia and New Zealand. The FSANZ Board members have expertise in a range of fields, including public health, consumer affairs, food science, human nutrition, microbiology, food safety, biotechnology, veterinary science, the food industry, food processing or retailing, primary food production, international trade, government and food regulation.
The Hon Rob Knowles (FSANZ Board Chairman)
The Hon Rob Knowles is a former Victorian Health Minister, with extensive knowledge of food issues and government. He was a member of the ANZFA Board.
Mrs Elaine Attwood (Member nominated by a consumer organisation)
Ms Attwood has broad experience in representing consumer issues on committees and boards. She has served on the executive of a number of peak consumer organisations, including the National Council of Women, and has a particular interest in food issues.
Professor Ken Buckle (Member nominated by a public/health science organisation)
Professor Buckle is well respected in the food technology field at a national and international level. He has a strong science background particularly in food safety and microbiology.
Dr John Craven (Member nominated by a public/health science organisation)
Dr Craven's expertise covers a broad spectrum in the agriculture and primary production fields. He is experienced in both the production and scientific sides of industry through his veterinary and microbiology qualifications and also had extensive experience in the dairy industry.
Professor Christopher Hudson (Member nominated by a food industry organisation)
Dr Hudson has a strong science background, as well as a long association with the food industry. He is a current or former member of a number of other Boards, including the former ANZFA Board, where he was Chair of the Finance and Audit Committee.
Mr Ian Lindenmayer (Chief Executive Officer, FSANZ)
Mr Lindenmayer was Managing Director of ANZFA since 1998. He was appointed Chief Executive Officer of FSANZ from 1 July 2002. Mr Lindenmayer has an extensive background in public administration and was previously Deputy Secretary of the Commonwealth health department. He was a member of the ANZFA Board.
Mr Peter Milne (Member nominated by a food industry organisation)
Mr Milne has a lifetime involvement in the livestock industry, and a great deal of experience in primary production issues. Mr Milne has also been involved in a number of committees and councils related to agriculture and food production.
Professor Kerin O'Dea (Member nominated by the National Health and Medical Research Council)
Professor O'Dea has a strong background in human nutrition including experience in indigenous health and nutrition issues. She is a member of a number of committees and groups involved with health and nutrition matters.
Ms Hikihiki Pihema (Member nominated by the New Zealand Government)
Ms Pihema has a strong background in human nutrition, having been a dietitian for 26 years. Her experience covers a variety of settings including community, public and Maori health. Ms Pihema was a member of the ANZFA Board.
Mr Owen Symmans (Member nominated by the New Zealand Government)
Mr Symmans is currently employed at managerial level in the New Zealand meat industry. He has a varied background, having worked for a farmers' organisation, in government, and in the dairy industry. He was an ANZFA Board member.
Professor Raymond Winger (Member nominated by the New Zealand Government)
Professor Winger has a strong academic and research background in food science and technology and nutrition. He has served as a member on a number of food-related committees and advisory groups and was a member of the ANZFA Board.
Dr Heather Yeatman (Member nominated by a public/health science organisation)
Dr Yeatman was an ANZFA Board member. She has a strong background in science and nutrition and is a member of a number of committees and groups dealing with health and nutrition issues.
Market research on food labelling
FSANZ recently completed preliminary research on labelling issues for key stakeholder groups. A report on labelling issues for consumers from the consultants, NFO Donovan Research, was published on the ANZFA (now FSANZ) website in March 2002.
The report on the second part of the qualitative research with three stakeholder groups (food industry, government enforcement officers and health professionals) is also now available on the FSANZ website (www.foodstandards.gov.au) under Media Releases and Publications.
The research aimed to provide baseline data on current levels of awareness and knowledge of labelling provisions, prior to the end of the transition period in December 2002, as well as the perceived costs and benefits for each group of the implementation of the changes. Information gained will be used to evaluate the impact of changing labelling provisions on stakeholder groups in the future.
The changes in nutrition information panels (NIP) and allergen labelling, the introduction of percentage labelling and new data marking provisions were the main focus of the research, though all label elements were considered.
Preliminary research findings indicate that different stakeholder groups identify different label elements as being of prime importance. For example, most health professionals reported that the NIP and ingredient list are most useful in assisting their clients. The food industry representatives believed the introduction of mandatory NIPs and percentage labelling has had the most impact on their industry.
Government enforcement officers reported that enforcement of labelling is, in general, of lower priority than other food safety issues, except for date marking and allergy labelling that could pose a public health and safety risk if incorrect.
Labelling issues for the food industry
The research findings indicate that some members of the food industry are saying that they may find it difficult to achieve compliance with the new Code by December 2002. In particular, all groups interviewed expressed concern about the awareness and understanding of small to medium manufacturers to implement the required changes.
Smaller manufacturing firms reported they either lack information of what is required to meet these new provisions or lack the capacity (personnel, time or financial resources) to implement them in time. In turn, this inability to be compliant by the December 2002 deadline will also affect larger retailers and food service outlets that source products from smaller firms.
The issue of stock-in-trade provisions was a particular area of confusion as to exactly what provision for sale, if any, would be made after December 2002 for food produced to the old standards during the transition period.
The latter issue has since been addressed by the Ministerial announcement on 28 June 2002 that there will be stock-in-trade provisions for 12 months for all foods produced to the old regulations prior to December 2002, with a 24 month stock-in-trade provision for long shelf-life products.
Enforcement of food standards
Another issue raised in the draft NFO Donovan Research report is the low priority accorded to enforcing food-labelling regulations by jurisdictions and local government-based enforcement agencies, with the exception of allergen labelling and date marking of food products.
Acrylamide and food
In April 2002, the Swedish National Food Administration announced their findings that the chemical, acrylamide, could be found in starch-containing foods cooked at high temperatures, such as fried or roasted potato products and bread. The presence of this chemical in food was not known previously. The Swedish data have been confirmed more recently by studies in the UK and have been discussed by the World Health Organization.
Acrylamide is known to cause toxicity to the nervous system in animals and humans at very high levels of exposure, but a threshold for this effect can be observed at a level of exposure that is far greater than the expected exposure from food. Consumption of food where acrylamide has been detected should not result in nerve damage.
The other health concern regarding acrylamide is its potential to cause genetic damage that may lead to cancer. On this matter, the available data are less clear and, although there is no evidence from human studies to link acrylamide exposure to increased cancer incidence, there is some evidence from animal studies to suggest such a link. Further information will be required clarify whether low-level exposure to acrylamide in food can increase the risk of cancer in humans.
In the light of international concerns, FSANZ is continuing to assess the available data on the safety of, and potential exposure to, acrylamide in food in the Australian and New Zealand populations. A fact sheet, 'Acrylamide and food', is on the FSANZ website at www.foodstandards.gov.au.
What the change to FSANZ means
In changing to Food Standards Australia New Zealand, a number of things will remain the same. FSANZ will:
- continue to develop food standards for Australia and New Zealand.
- continue to work with its stakeholder groups to develop food standards for Australia and New Zealand.
- remain committed to improving its stakeholder interfaces and community involvement processes.
- have the same statutory objectives for developing food standards:
- to protect public health and safety;
- to provide adequate information to consumers to enable consumer choice; and
- to prevent misleading and deceptive conduct.
- have the same contact details as for ANZFA, but new web address: (www.foodstandards.gov.au and www.foodstandards.govt.nz) and email addresses firstname.lastname@foodstandards.gov.au (for staff in Australia) or firstname.lastname@foodstandards.govt.nz. (for staff in New Zealand).
The Board and staff of FSANZ will continue to work with Commonwealth, State, Territory and New Zealand jurisdictions and our stakeholders to develop and implement the new joint Food Standards Code for Australia and New Zealand.
The two-year transition period for the new Code will come to an end in December 2002 and FSANZ, like ANZFA, is keen to ensure that the food industry has the information and support necessary to ensure a smooth change to the new Code.
FSANZ has a new and improved website where businesses and consumers can continue to find detailed information about these changes and the other work that will be undertaken by FSANZ. The industry advice line (Australia 1 300 652 166 or New Zealand 0 800 441 571) is still available for businesses to find out more about the Code and what they need to do to ensure their products can be sold lawfully after December 2002.
All staff of ANZFA have moved across to FSANZ and will continue the work of ANZFA, including progressing the Standards Work Plan, that was commenced by ANZFA.
Chief Scientist Dr Marion Healy looks at sulphite intolerances
The regulatory requirements in the joint Food Standards Code that will apply in Australia and New Zealand from late this year include labelling requirements to assist consumers with food allergies and/or sensitivities.
In this regard, the presence in foods of a number of foods/food ingredients that elicit various sensitive reactions must be declared on food labels. The revised labelling requirements apply to the following foods and their products: cereals containing gluten, crustacea, eggs, fish, milk, nuts and sesame seeds, peanuts and soybeans, bee products (such as pollen and propolis) and added sulphites at certain concentrations.
The presence of sulphites must be declared, as they have the potential to cause severe systemic reactions and, in rare cases, mortality in certain sulphite-sensitive asthmatic individuals. The Joint FAO/WHO Expert Committee on Food Additives reviewed the available human case studies in which hypersensitivity to sulphites had been detected via an adverse reaction to food and the reaction was confirmed in experimental studies.
This review identified individuals with chronic asthma who reacted to sulphites with respiratory symptoms. Of particular note was the finding of sulphite sensitivity in approximately 20-30% of asthmatic children. However, the review also identified a number of allergic-like responses in non-asthmatics, where the symptoms were non-respiratory.
The term 'sulphites' includes a range of related substances (bisulphites, metabisulphites and sulphur dioxide). Sulphites are added to some foods primarily as preservatives that retard the deterioration of food by microorganisms. They may also be added to inhibit browning reactions. Sulphites are widely added to foods such as wine, cordials, processed fruit and vegetables and comminuted meat products (such as fermented sausage).
For example, added sulphites are sometimes found in preparations of fruit and vegetable and their products (eg pulps, chutneys), fruit and vegetables preserved in different ways (eg frozen, dried, in brine), and fruit and vegetable products prepared for manufacturing purposes.
Drinks derived from fruit and vegetables may also contain sulphites - these include juices and their products, water based flavoured drinks, wines and beer. It is important to note that sulphites tend to degrade over time and also in response to food preparation and cooking.
A number of foods with added sulphites may be present in the diet of children. An analysis of foods that may result in dietary exposure to sulphites in Australian children suggests that various drinks (especially cordial) are the greatest contributors. Dried fruit may also contribute significantly to sulphite dietary exposure. While comparable information is not currently available for New Zealand children in the under 12 years age group, it is expected similar foods will contribute to sulphite exposure in that group.
It is therefore very important that the labelling provisions are used to identify foods containing sulphites for those consumers with sulphite sensitivities, and particularly for at-risk children. The presence of sulphites is indicated in the ingredient list either by its specific name or its code number. The sulphite code numbers can be identified in the 'Food Additive's Shoppers Guide', available from the web site at www.foodstandards.gov.au.