2-05
       23 March 2005
                FINAL ASSESSMENT REPORT
                      PROPOSAL P265
            PRIMARY PRODUCTION & PROCESSING
                 STANDARD FOR SEAFOOD
                       FOOD STANDARDS AUSTRALIA NEW ZEALAND (FSANZ)
                       FSANZ’s role is to protect the health and safety of people in Australia and New Zealand through the 
                       maintenance of a safe food supply.  FSANZ is a partnership between ten Governments: the 
                       Commonwealth; Australian States and Territories; and New Zealand.  It is a statutory authority under 
                       Commonwealth law and is an independent, expert body.
                       FSANZ is responsible for developing, varying and reviewing standards and for developing codes of 
                       conduct with industry for food available in Australia and New Zealand covering labelling, 
                       composition and contaminants.  In Australia, FSANZ also develops food standards for food safety, 
                       maximum residue limits, primary production and processing and a range of other functions including 
                       the coordination of national food surveillance and recall systems, conducting research and assessing 
                       policies about imported food.
                       The FSANZ Board approves new standards or variations to food standards in accordance with policy 
                       guidelines set by the Australia and New Zealand Food Regulation Ministerial Council (Ministerial 
                       Council) made up of Commonwealth, State and Territory and New Zealand Health Ministers as lead 
                       Ministers, with representation from other portfolios.  Approved standards are then notified to the 
                       Ministerial Council.  The Ministerial Council may then request that FSANZ review a proposed or 
                       existing standard.  If the Ministerial Council does not request that FSANZ review the draft standard, 
                       or amends a draft standard, the standard is adopted by reference under the food laws of the 
                       Commonwealth, States, Territories and New Zealand.  The Ministerial Council can, independently of 
                       a notification from FSANZ, request that FSANZ review a standard.
                       The process for amending the Australia New Zealand Food Standards Code (the Code) is prescribed 
                       in the Food Standards Australia New Zealand Act 1991 (FSANZ Act).  The diagram below represents 
                       the different stages in the process including when periods of public consultation occur.  This process 
                       varies for matters that are urgent or minor in significance or complexity.
                   Comment on scope, possible                                   INITIAL               An IA report is prepared with an outline of issues and 
                   options and direction of                                 ASSESSMENT                possible options; affected parties are identified and questions 
                   regulatory framework                                                               for stakeholders are included
                   Provide information and answer                                                     Applications accepted by FSANZ Board
                   questions raised in Initial                                                        IA Report released for public comment
                   Assessment report                             Public 
                   Identify other groups or                  Consultation
                   individuals who might be affected                                                  Public submissions collated and analysed
                   and how – whether financially or                                                   A Draft Assessment (DA) report is prepared using information 
                   in some other way                                                                  provided by the applicant, stakeholders and other sources
                                                                                                      A scientific risk assessment is prepared as well as other 
                                                                                 DRAFT                scientific studies completed using the best scientific evidence 
                                                                            ASSESSMENT                available
                                                                                                      Risk analysis is completed and a risk management plan is 
                                                                                                      developed together with a communication plan
                   Comment on scientific risk                                                         Impact analysis is used to identify costs and benefits to all 
                   assessment; proposed                                                               affected groups
                   regulatory decision and                       Public                               An appropriate regulatory response is identified and if 
                   justification and wording of draft        Consultation                             necessary a draft food standard is prepared 
                   standard                                                                           A WTO notification is prepared if necessary
                   Comment on costs and benefits                                                      DA Report considered by FSANZ Board
                   and assessment of regulatory                                                       DA Report released for public comment
                   impacts
                                                                                                      Comments received on DA report are analysed and 
                                                                                 FINAL                amendments made to the report and the draft regulations as 
                                                                            ASSESSMENT                required
                                                                                                      The FSANZ Board approves or rejects the Final Assessment 
                                                                                                      report
                                                                 Public                               The Ministerial Council is notified within 14 days of the 
                   Those who have provided                    Information                             decision
                   submissions are notified of the                                                    If the Ministerial Council does not ask FSANZ to review a 
                   Board’s decision                                          MINISTERIAL              draft standard, it is gazetted and automatically becomes law 
                                                                               COUNCIL                in Australia and New Zealand
                                                                                                      The Ministerial Council can ask FSANZ to review the draft 
                                                                                                      standard up to two times
                                                                                                      After a second review, the Ministerial Council can revoke the 
                                                                                                      draft standard. If it amends or decides not to amend the draft 
                                                                                                      standard, gazettal of the standard proceeds
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             Final Assessment Stage
             FSANZ has now completed two stages of the assessment process and held two rounds of public 
             consultation as part of its assessment of this Proposal. This Final Assessment Report and its 
             recommendations have been approved by the FSANZ Board and notified to the Ministerial 
             Council.
             If the Ministerial Council does not request FSANZ to review the draft amendments to the Code, 
             an amendment to the Code is published in the Commonwealth Gazette and the New Zealand 
             Gazette and adopted by reference and without amendment under Australian State and Territory 
             food law.
             Note, however, that this particular Standard, will not apply in New Zealand.
             Further Information
             Further Information on this Proposal and the assessment process should be addressed to the 
             FSANZ Standards Management Officer at one of the following addresses.
             Food Standards Australia New Zealand     Food Standards Australia New Zealand
             PO Box 7186                              PO Box 10559
             Canberra BC ACT 2610                     The Terrace WELLINGTON 6036
             AUSTRALIA                                NEW ZEALAND
             Tel (02) 6271 2222                       Tel (04) 473 9942
             www.foodstandards.gov.au                 www.foodstandards.govt.nz 
             Assessment reports are available for viewing and downloading from the FSANZ website 
             www.foodstandards.gov.au or alternatively paper copies of the reports can be 
             requested from FSANZ’s Information Officer at info@foodstandards.gov.au 
             including other general enquiries and requests for information. 
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                                                       TABLE OF CONTENTS
                  EXECUTIVE SUMMARY.................................................................................................................7
                  1.    INTRODUCTION.......................................................................................................................7
                     1.1      FOOD SAFETY IS A PUBLIC HEALTH ISSUE.............................................................................7
                     1.2      AUSTRALIAN FOOD STANDARDS............................................................................................7
                  2.    BACKGROUND.........................................................................................................................7
                     2.1      THE SEAFOOD SECTOR..........................................................................................................7
                     2.2      DEVELOPMENT OF A PRIMARY PRODUCTION AND PROCESSING STANDARD FOR SEAFOOD.....7
                     2.3      LABELLING OF FISH NAMES...................................................................................................7
                  3.    CURRENT MANAGEMENT STRATEGIES TO ADDRESS SEAFOOD SAFETY............7
                     3.1      DOMESTIC PRODUCTION - REGULATORY REQUIREMENTS FOR FOOD SAFETY........................7
                        3.1.1       Australia New Zealand Food Standards Code - adopted nationally under 
                        State/Territory legislation.............................................................................................................7
                        3.1.2       State and Territory regulations for the primary production of seafood........................7
                        3.1.3       Australian Shellfish Quality Assurance Program (ASQAP).........................................7
                     3.2      VOLUNTARY INDUSTRY STANDARDS AND GUIDELINES FOR DOMESTIC PRODUCTION.............7
                     3.3      IMPORTED SEAFOOD - REGULATORY REQUIREMENTS FOR FOOD SAFETY...............................7
                        3.3.1       Recognised quality assurance arrangements...............................................................7
                        3.3.2       Certification provided by overseas governments.........................................................7
                        3.3.3       Monitoring for food safety by States and Territories...................................................7
                        3.3.4       Enforcement of process standards for imported food...................................................7
                        3.3.5       Importation of seafood from New Zealand..................................................................7
                     3.4      FOOD SAFETY AND EXPORTED SEAFOOD...............................................................................7
                     3.5      SUMMARY OF REGULATION OF THE AUSTRALIAN SEAFOOD SECTOR.....................................7
                  4.    REGULATORY PROBLEM......................................................................................................7
                     4.1      GROWING GLOBAL BURDEN OF FOOD-BORNE ILLNESS..........................................................7
                     4.2      IMPACTS OF FOOD-BORNE ILLNESS IN AUSTRALIA................................................................7
                     4.3      A NEW APPROACH TO FOOD SAFETY.....................................................................................7
                     4.4      IDENTIFICATION OF PUBLIC HEALTH AND SAFETY RISKS POSED BY SEAFOOD........................7
                        4.4.1       Risk ranking method....................................................................................................7
                        4.4.2       Future reviews of the risk ranking...............................................................................7
                        4.4.3       Food safety hazards in seafood...................................................................................7
                        4.4.4       Summary of risk rankings............................................................................................7
                     4.5      EXAMINATION OF EXISTING MANAGEMENT SYSTEMS AND THEIR CONTROL OF IDENTIFIED 
                     RISKS    7
                        4.5.1       Seafood ranked as high (relative to other seafood).....................................................7
                        4.5.2       Lower risk seafood......................................................................................................7
                  5.    OBJECTIVE...............................................................................................................................7
                  6.    REGULATORY OPTIONS........................................................................................................7
                     6.1      SCOPE OF THE STANDARD AND DEFINITION OF SEAFOOD.....................................................7
                     6.2      OPTION 1 – THE STATUS QUO................................................................................................7
                     6.3      OPTION 2 – A PRIMARY PRODUCTION AND PROCESSING STANDARD TARGETING HIGH-RISK 
                     SEAFOOD ACTIVITIES ONLY................................................................................................................7
                     6.4      OPTION 3 – A RISK-BASED PRIMARY PRODUCTION AND PROCESSING STANDARD TO 
                     IMPROVE THE OVERALL SAFETY IN THE SEAFOOD SUPPLY CHAIN......................................................7
                     6.5      SUMMARY OF OPTIONS..........................................................................................................7
                  7.    IMPACT ANALYSIS FOR SEAFOOD.....................................................................................7
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