中国与欧盟有机产品标准及认证认可制度的比较研究
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摘要
国际有机农业运动联盟有机生产和加工基本标准(IBS)反映了当前有机农业生产和加工水平,是各国政府和民间认证机构制定有机产品标准的基础。欧盟具有目前世界上最成熟的有机产品标准及制度,也是有机产品的重要进口国和消费市场。然而,我国有机农业发展较晚,国内标准的部分内容仍不够成熟,因此国内有机产品并未得到欧盟国家认可,成为了国内有机产品出口创汇的阻力。本研究分析比较我国与欧盟有机产品标准和认证认可制度之间的差距,吸取其发展经验,为国内修订标准、完善制度提供参考依据,从而推动我国加入欧盟有机产品进口第三国名单的进程,促进我国有机农业及产品进一步规范化、市场化、国际化,增强我国有机产品在国际市场上的竞争力,保证我国有机农业健康持续发展。
本研究以近十年来国际有机农业运动联盟(IFOAM)发布的IBS为依据,探讨IBS发展的历史和趋势；并依照现行的IBS、中国和欧盟有机产品标准,以IBS为平台,对中国与欧盟有机产品标准进行比较研究(包括两者在作物生产、畜禽养殖、蜜蜂养殖、水产养殖等生产和加工标准要求的比较),探讨两者的异同以及相关原因,为我国有机产品标准的修订提供具体建议；以中国和欧盟的与有机农业相关的制度文件为依据,比较中国与欧盟有机认证认可制度的异同(主要从法律法规、监管体系、标识、认可程序、认证程序这五个方面进行比较),为我国有机认证认可制度的发展提供意见。主要研究结论如下：
1.IBS的发展方向：
IBS应该向范围更广,结构更协调统一,内容更具体定量的方向发展,否则将难以取得进一步的进展。
2.中国与欧盟有机产品标准在总体上存在着较大的差异：
1)标准性质不同：中国有机产品标准GB/T 19630是一种技术性标准,而欧盟有机产品标准则直接被规定为法规(Regulation),是技术标准与法规的结合体。
2)标准体系不同：GB/T 19630是按有机农业的产业链分为生产、加工、标识和销售、管理体系四个部分；欧盟有机产品标准是以标准(EC)834/2007为中心,其余标准为其实施细则或补充细则的形式构成。
3)标准结构不同：GB/T 19630中植物种植、食用菌栽培、畜禽养殖、蜜蜂和蜂产品是独立存在的,其地位是平等的,而欧盟有机产品标准把植物生产和食用菌栽培归入作物生产,把蜜蜂养殖和畜禽养殖归入动物养殖。
4)标准范围不同：GB/T 19630.2《有机加工》的适用范围包括食品和纺织品,而欧盟有机加工标准的适用范围不包括纺织品。
5)规范性引用文件的位置不同：GB/T 19630的每部分会集中列举与本标准有关的各个规范性引用文件,而欧盟有机产品标准的规范性引用文件则是分散在每页的尾注中。
6)定义不同：定义在数量和侧重角度上不同。3.中国与欧盟有机产品标准在内容上的异同点
中国和欧盟有机产品标准都是在IBS的基础上发展起来的有机产品标准,因此中国与欧盟在有机生产和加工的原则性要求上都与IBS保持一致,但在具体的生产和加工的细节性要求上有较大差异,分为如下三种情况：
1)中国有机产品标准要求而欧盟有机产品标准未作出要求的部分,如产地环境、缓冲带、栖息地、蜂蜜的提取和贮存；
2)欧盟有机产品标准要求而中国有机产品标准未作出要求的部分,如种子数据库、畜禽肥料限量、有机动物饲料清单、饲料加工添加剂清单、水草、贝类和酵母等专项标准；
3)两种有机产品标准都包含但存在分歧的部分,如人粪尿、转基因兽药、蜂王人工受精、各项外部投入品(包括肥料、植保产品、食品添加剂、食品加工助剂)。4.中国与欧盟的有机认证认可制度的异同点
1)在法律效应方面,中国将技术标准与行政法规相分离,而欧盟则将技术标准和行政法规合二为一
2)中国与欧盟的有机监管体系不同。中国的有机监管体系分为三层,欧盟的有机监管体系分为四层。
3)有机标识的要求上,欧盟各成员国认证的有机产品不使用各成员国的标识,而是统一采用欧盟有机标识。中国具有有机和有机转换两种标识,而欧盟不具有有机转换标识。对于有机配料少于95%的产品,中国与欧盟具有不同的标识条件和要求。
4)中国与欧盟的有机认可程序大致相同。
5)中国与欧盟的有机认证程序大致相同。
International Federation of Organic Agriculture Movements Basic Standard for Organic Production and Processing (IBS) reflects the current state of organic production and processing methods of organic farming. IBS provides a framework for certification bodies and standard setting organizations worldwide to develop their own certification standards. EU has the world's most sophisticated organic product standard and system. EU is a major importer and consumption market of organic products. While the development of organic farming in China is relatively late, and some parts of GB/T 19630 are not perfect, the Chinese organic products are not approved by the EU countries which made it more difficult to be exported abroad. This study analyzed and compared the gap of organic product standards, certification and accreditation systems between China and EU. Then China could learn from EU experiences in revising GB/T 19630 and improving its system. Ultimately China will be listed in the EU import third countries list, and Chinese exported products could be marketed in the EU as organic. The study could also promote China's organic agriculture and product future standardize, marketization, internationalization, and enhance China organic agricultural products in international market competition, and insure the health and sustainable development of organic fanning in China.
This study discussed the history and trend of IBS based on the versions that IFOAM issued over the past decade. The study compared China organic product standard with EU organic product standard on IBS platform based on their current versions in crop production, animal husbandry, bee keeping, aquaculture production, food processing. Then the study provided specific recommendations for the amendment of GB/T 19630 through the similarities and differences between the two and the reasons. The study also compared organic certification and accreditation system between China and EU based on their related documents in laws and regulations, supervision system, labeling, accreditation procedure, certification procedure. Then the study provided recommendations for the development of China organic certification and accreditation system through the similarities and differences between the two. The main conclusions are as follows.
1. The development direction of IBS:
IBS should be towards a way which leads to a broader ranger, more coherent structure and more quantitative content; otherwise it is difficult for IBS to achieve further progress.
2. There are many differences between China and EU organic certification standards in general:
1) Different in nature:GB/T 19630 is a technical standard, while the EU organic standards are regulations, which are the combination of technical standards and the legislation.
2) Different in component:GB/T 19630 had four parts which were production, processing, labeling and sales, management system according to the product chain of organic farming; while EU organic standards take Council Regulation (EC) 834/2007 as the center, other Commission Regulations as implementation detail rules and supplementary standards.
3) Different in structure:crop production, mushroom cultivation, livestock and poultry production, bees and bee products are at the same level in GB/T 19630, while in EU organic product standard plant cultivation and mushroom cultivation belonged to the crop production, and bee keeping and livestock and poultry production belonged to animal husbandry.
4) Different in coverage:GB/T 19630.2 "organic processing" applies to organic food and textiles, while the EU organic processing standards doesn't apply to textiles.
5) Different in the location of the normative references:The normative documents in GB/T 19630 were cited in the beginning, while in EU organic standards were scattered in the endnotes of each page.
6) Different in definition:Definitions are different in its number and focus.
3. The same and different points in the content of organic product standards between China and EU
Both China and EU organic standards are developed on the basis of IBS, so the principles and general requirements of them are all consistent with IBS, but the specific details requirements of the two are quite different as the following three conditions:
1) Requirements mentioned in China organic standard and not mentioned in EU organic standard, such as producing environment, buffer zones, habitat, honey extraction and storage;
2) Requirements mentioned in EU organic standard and not mentioned in China organic standard, such as seed database, livestock manure limit, list of organic animal feed and feed additives, special standards for seaweed, shellfish and yeast;
3) The conflict requirements between China and EU organic standards, such as the use of human waste, transgenic animal medicine, queen bee artificial insemination, the external inputs (including fertilizers, plant protection products, food additives and processing aids).
4. The same and different points in the organic certification and accreditation systems between China and EU
1) In legal effect, technical standards and administrative standards were separation in China, while they were combination in EU.
2) Different in regulatory systems:organic regulatory system in China was divided into three levels, in EU was divided into four levels.
3) Different in organic labeling:the EU organic products did not use national organic logo, and the EU Member States uniform application of EU organic logo, while China used its national logos. China had both the organic labeling and organic conversion labeling, while the EU did not have the organic conversion labeling. For the products with organic ingredients below 95%, China and EU had different conditions and requirements in labeling.
4) There is no appreciable difference in accreditation process between China and EU.
5) There is no appreciable difference in certification process between China and EU.
本研究以近十年来国际有机农业运动联盟(IFOAM)发布的IBS为依据,探讨IBS发展的历史和趋势；并依照现行的IBS、中国和欧盟有机产品标准,以IBS为平台,对中国与欧盟有机产品标准进行比较研究(包括两者在作物生产、畜禽养殖、蜜蜂养殖、水产养殖等生产和加工标准要求的比较),探讨两者的异同以及相关原因,为我国有机产品标准的修订提供具体建议；以中国和欧盟的与有机农业相关的制度文件为依据,比较中国与欧盟有机认证认可制度的异同(主要从法律法规、监管体系、标识、认可程序、认证程序这五个方面进行比较),为我国有机认证认可制度的发展提供意见。主要研究结论如下：
1.IBS的发展方向：
IBS应该向范围更广,结构更协调统一,内容更具体定量的方向发展,否则将难以取得进一步的进展。
2.中国与欧盟有机产品标准在总体上存在着较大的差异：
1)标准性质不同：中国有机产品标准GB/T 19630是一种技术性标准,而欧盟有机产品标准则直接被规定为法规(Regulation),是技术标准与法规的结合体。
2)标准体系不同：GB/T 19630是按有机农业的产业链分为生产、加工、标识和销售、管理体系四个部分；欧盟有机产品标准是以标准(EC)834/2007为中心,其余标准为其实施细则或补充细则的形式构成。
3)标准结构不同：GB/T 19630中植物种植、食用菌栽培、畜禽养殖、蜜蜂和蜂产品是独立存在的,其地位是平等的,而欧盟有机产品标准把植物生产和食用菌栽培归入作物生产,把蜜蜂养殖和畜禽养殖归入动物养殖。
4)标准范围不同：GB/T 19630.2《有机加工》的适用范围包括食品和纺织品,而欧盟有机加工标准的适用范围不包括纺织品。
5)规范性引用文件的位置不同：GB/T 19630的每部分会集中列举与本标准有关的各个规范性引用文件,而欧盟有机产品标准的规范性引用文件则是分散在每页的尾注中。
6)定义不同：定义在数量和侧重角度上不同。3.中国与欧盟有机产品标准在内容上的异同点
中国和欧盟有机产品标准都是在IBS的基础上发展起来的有机产品标准,因此中国与欧盟在有机生产和加工的原则性要求上都与IBS保持一致,但在具体的生产和加工的细节性要求上有较大差异,分为如下三种情况：
1)中国有机产品标准要求而欧盟有机产品标准未作出要求的部分,如产地环境、缓冲带、栖息地、蜂蜜的提取和贮存；
2)欧盟有机产品标准要求而中国有机产品标准未作出要求的部分,如种子数据库、畜禽肥料限量、有机动物饲料清单、饲料加工添加剂清单、水草、贝类和酵母等专项标准；
3)两种有机产品标准都包含但存在分歧的部分,如人粪尿、转基因兽药、蜂王人工受精、各项外部投入品(包括肥料、植保产品、食品添加剂、食品加工助剂)。4.中国与欧盟的有机认证认可制度的异同点
1)在法律效应方面,中国将技术标准与行政法规相分离,而欧盟则将技术标准和行政法规合二为一
2)中国与欧盟的有机监管体系不同。中国的有机监管体系分为三层,欧盟的有机监管体系分为四层。
3)有机标识的要求上,欧盟各成员国认证的有机产品不使用各成员国的标识,而是统一采用欧盟有机标识。中国具有有机和有机转换两种标识,而欧盟不具有有机转换标识。对于有机配料少于95%的产品,中国与欧盟具有不同的标识条件和要求。
4)中国与欧盟的有机认可程序大致相同。
5)中国与欧盟的有机认证程序大致相同。
International Federation of Organic Agriculture Movements Basic Standard for Organic Production and Processing (IBS) reflects the current state of organic production and processing methods of organic farming. IBS provides a framework for certification bodies and standard setting organizations worldwide to develop their own certification standards. EU has the world's most sophisticated organic product standard and system. EU is a major importer and consumption market of organic products. While the development of organic farming in China is relatively late, and some parts of GB/T 19630 are not perfect, the Chinese organic products are not approved by the EU countries which made it more difficult to be exported abroad. This study analyzed and compared the gap of organic product standards, certification and accreditation systems between China and EU. Then China could learn from EU experiences in revising GB/T 19630 and improving its system. Ultimately China will be listed in the EU import third countries list, and Chinese exported products could be marketed in the EU as organic. The study could also promote China's organic agriculture and product future standardize, marketization, internationalization, and enhance China organic agricultural products in international market competition, and insure the health and sustainable development of organic fanning in China.
This study discussed the history and trend of IBS based on the versions that IFOAM issued over the past decade. The study compared China organic product standard with EU organic product standard on IBS platform based on their current versions in crop production, animal husbandry, bee keeping, aquaculture production, food processing. Then the study provided specific recommendations for the amendment of GB/T 19630 through the similarities and differences between the two and the reasons. The study also compared organic certification and accreditation system between China and EU based on their related documents in laws and regulations, supervision system, labeling, accreditation procedure, certification procedure. Then the study provided recommendations for the development of China organic certification and accreditation system through the similarities and differences between the two. The main conclusions are as follows.
1. The development direction of IBS:
IBS should be towards a way which leads to a broader ranger, more coherent structure and more quantitative content; otherwise it is difficult for IBS to achieve further progress.
2. There are many differences between China and EU organic certification standards in general:
1) Different in nature:GB/T 19630 is a technical standard, while the EU organic standards are regulations, which are the combination of technical standards and the legislation.
2) Different in component:GB/T 19630 had four parts which were production, processing, labeling and sales, management system according to the product chain of organic farming; while EU organic standards take Council Regulation (EC) 834/2007 as the center, other Commission Regulations as implementation detail rules and supplementary standards.
3) Different in structure:crop production, mushroom cultivation, livestock and poultry production, bees and bee products are at the same level in GB/T 19630, while in EU organic product standard plant cultivation and mushroom cultivation belonged to the crop production, and bee keeping and livestock and poultry production belonged to animal husbandry.
4) Different in coverage:GB/T 19630.2 "organic processing" applies to organic food and textiles, while the EU organic processing standards doesn't apply to textiles.
5) Different in the location of the normative references:The normative documents in GB/T 19630 were cited in the beginning, while in EU organic standards were scattered in the endnotes of each page.
6) Different in definition:Definitions are different in its number and focus.
3. The same and different points in the content of organic product standards between China and EU
Both China and EU organic standards are developed on the basis of IBS, so the principles and general requirements of them are all consistent with IBS, but the specific details requirements of the two are quite different as the following three conditions:
1) Requirements mentioned in China organic standard and not mentioned in EU organic standard, such as producing environment, buffer zones, habitat, honey extraction and storage;
2) Requirements mentioned in EU organic standard and not mentioned in China organic standard, such as seed database, livestock manure limit, list of organic animal feed and feed additives, special standards for seaweed, shellfish and yeast;
3) The conflict requirements between China and EU organic standards, such as the use of human waste, transgenic animal medicine, queen bee artificial insemination, the external inputs (including fertilizers, plant protection products, food additives and processing aids).
4. The same and different points in the organic certification and accreditation systems between China and EU
1) In legal effect, technical standards and administrative standards were separation in China, while they were combination in EU.
2) Different in regulatory systems:organic regulatory system in China was divided into three levels, in EU was divided into four levels.
3) Different in organic labeling:the EU organic products did not use national organic logo, and the EU Member States uniform application of EU organic logo, while China used its national logos. China had both the organic labeling and organic conversion labeling, while the EU did not have the organic conversion labeling. For the products with organic ingredients below 95%, China and EU had different conditions and requirements in labeling.
4) There is no appreciable difference in accreditation process between China and EU.
5) There is no appreciable difference in certification process between China and EU.
引文
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