Silviase/jgov_v1.4_full_ann huggingface dataset:
7. Establishment of the Basic Law on Food Safety and the Food Safety Commission

In February 2003, the Basic Bill on Food Safety was submitted to the 156th ordinary session of the Diet. The government had been discussing what to include in the bill since June 2002 when the decision on reformation of the food safety administration was made at the Meeting of Cabinet Ministers on the Food Safety Administration, which was held in response to the proposal made in a report submitted in April 2002 by the BSE Investigation Committee. The reform was planned to be carried out through such measures as the establishment of the Food Safety Commission (tentative name) and the Basic Law on Food Safety (tentative name).

The submitted bill specifies that food safety must be ensured by taking the necessary measures based on the basic understanding that the protection of public health has top priority and also that the concept of risk analysis must be introduced to food safety administration by establishing the Food Safety Commission in the Cabinet Office, which has the sale authority to assess the risks related to food safety.

Under the Basic Law on Food Safety, the administration for the safety of food including fishery products will undergo fundamental reform.
### I. Special Feature: In Pursuit of Safety and Reliability of Fishery Products

### 1. Importance of ensuring the safety and reliability of fishery products

For Japanese people, fishery products are very important because they account for 20% of the protein (40% of the animal protein) Japanese people take in from foods. Their nutritious benefits have been rediscovered in recent years.

The importance of fishery products in the Japanese diet is greater than that in diets of other countries. Therefore, the safety and reliability of fishery products are essential in maintaining the safety and reliability in Japanese diet.

### 2. Basic framework and reinforced measures to ensure the safety of fishery products

## (1) Basic framework to ensure safety

## (Food Hygiene Law and other measures to ensure safety)

Measures for food safety have been taken mostly within the basic framework of food safety standards based on the Food Hygiene Law. Under the framework, food producers and food companies, which have primary responsibility for providing safe food to consumers, need to comply with relevant laws and to make efforts to ensure food safety. Efforts to ensure food safety must be made in all food-related industries including the fisheries industry.
## (Outbreaks of food poisoning and recent trends)

The number of food-poisoning cases has been on the decline. In recent years, however, we have seen large-scale food-poisoning cases caused by enterohemorrhagic Escherichia coli O157 and other contaminants.

The number of food-poisoning cases caused by fishery products including processed products has decreased as a whole because food-poisoning cases caused by Vibrio parahaemolyticus, which have been major cases in Japan occur less frequently these days.

However, in 1998 and 1999, the number of cases caused by Vibrio parahaemolyticus started to rise again. In June 2001, the standards for such products as boiled crabs and fresh fishery products to be eaten raw in the form of filleted fish or shelled fishery products were established based on the Food Hygiene Law. The frequency of food-poisoning cases caused by the Small Round Structured Virus (SRSV) has also increased. In order to help identify the source of poisoning, producers of packaged oysters to be eaten raw have been obliged to indicate on each oyster package the fishing area since the revision of the Food Hygiene Law in 1999.

## (Effects of long-term continuous intake of chemical substances)

The maximum permissible levels of total mercury and methyl mercury, or PCB contained in fishery products have been set on a temporary basis. No fishery products with levels of contamination higher than the set levels are allowed to be marketed, sold, etc. In some waters, the levels of such contamination are monitored. In addition, voluntary fishery restrictions are imposed.

A tolerable daily intake of dioxins is set at 4 pg-TEQ/kg of weight/day based on the basic principle of WHO expert meetings. Foods are responsible for more than 90% of Japanese people's total intake of dioxins, of which about 80% is considered to be attributable to fishery products.

According to an interim report issued in September 2002 regarding a survey on fishery product contamination, the concentration of dioxins in fish and shellfish greatly differs among different species and their habitat environment. Japanese people should not be concerned because the national intake of dioxins is much lower than the above-mentioned tolerable level, as long as diets include a variety of fish caught in different fishing areas. The intake of dioxins from foods per day in 1998 decreased to the level about one third the level in 1977.
## Results of a survey on daily intake of dioxins from foods

(Unit: pg-TEO/kg of weight/day)

1977 year	1982	1988	1992	1995	1998	1999 FY	2000	2001
Intake per kg of weight per day	8.18	5.32	5.58	2.07	2.30	2.72	2.25	1.45	1.63

Source: Ministry of Health, Labour and Welfare

Note: 1) The above calculation was made based on the assumption that the average weight of a Japanese person was 50kg.

2) The figures for the period from 1977 through 1998 were calculated based on an analysis of the concentration of dioxins contained in the past samples in the Kansai region of Japan.

3) The figures for the period from 1999 through 2001 were calculated based on the results of research on the daily intake of dioxins from foods.

In July 1999, the Law Concerning Special Measures against Dioxins was established. The law has contributed to reducing the emissions of dioxins by raising the standards for incinerators and other facilities.

## (Ensuring safety of imported products)

Businesses that import food for sale or processing must follow the import reporting procedure under the Food Hygiene Law. Upon reporting, the relevant authorities conduct an examination on the food in consideration of such data as the exporting country, food item, and producer of the food and, if necessary, carry out an inspection on the food as well. Fishery products accounted for about 20% of the number of import reports in 2001 (about 10% in terms of weight).

Japanese people consume domestic and imported fishery products on almost an equal basis. It is therefore important to ensure the safety of imported fishery products as well as domestic products.

The frequent discovery of higher than permitted levels of residual agricultural chemicals in products such as imported frozen spinach prompted a revision of the Food Hygiene Law in July 2002. The revision has authorized the Minister of Health, Labour and Welfare to ban, if necessary, without any inspection, the import of a certain food items produced in a certain country or area in order to prevent risk to public health caused by food contamination or poisoning.

The number of reporting of imported foods has approximately doubled in the past 10 years. The inspection system needs to be enhanced in order to ensure the safety of imported foods.
Breakdown of the imported items filed in 2001

Number of cases reported: 1.61 million

Source: Ministry of Health, Labour and Welfare

## (2) Measures to ensure safety

## (Trends in the production of fishery products)

For the provision of safe and reliable food, the production stage is the starting point from which each step will follow. Aquaculture accounts for about 20% of the total fishery production of Japan and has been on the rise in recent years. As far as certain types of fishery products are concerned, aquaculture accounts for 70 to 80%. The safety of cultured fishery products depends largely on how aquaculture operators manage the production.

The remaining 80% or so is caught in the wild. For provision of safe fishery products, the aquatic environment such as the sea and rivers must be conserved.

## (Measures to ensure the safety of cultured fish)

Many fishery operators use the same water area to conduct aquaculture operations and cultivate a lot of fish in each fish cage. Once a disease breaks out, the damage tends to easily spread. The environment of a part of area affects the aquaculture carried out in its entire water area, as fish diseases which occur in a part of aquaculture area, tend to spread to all the area. Therefore, it is important for aquaculture operators to take measures against fish diseases and conserve environments of aquaculture area.
## (Medical products for fish)

In order to prevent and cure fish diseases, medical products for fish are used for aquaculture and other purposes.

Restrictions have been established on the use of the medical products for major fish species (11 fish species including yellowtail, sea bream, and eel), which require special care with regard to residual chemicals. Violation of the restrictions will result in prosecution.

As the kinds of cultured fish have been diversifying, comprehensive restrictions that apply to all kinds of fish and medical will be established in the future.

It is important to promote the transition to measures that put more emphasis on disease prevention through creating better fishing environments and appropriate breeding. In recent years, vaccines to prevent fish diseases have been developed. Furthermore, under the Law for Ensuring Sustainable Aquaculture Production established in 1999, plans to improve fishing grounds have been established and implemented in many parts of Japan.

## (Feed for cultured aquatic animals)

Under the Law for Ensuring Safety and Improving the Quality of Feed (Feed Safety Law), standards were established for the production and usage of the feed of 7 major species of cultured fish and additives in feed. The use of antibiotics has been prohibited. Since October 2001, meat-and-bone powder has been prohibited from being added to feed. As the kinds of cultured fish have been diversifying, comprehensive specifications and restrictions that apply to all fish species will be established in the future.

## (Antifoulant for fishnets)

Antifoulant is used to prevent aquatic organisms from clinging to fishnets and decreasing the flow of seawater in fish cages. The production and import of various organic tin compounds, which used to be used as active ingredients of antifoulant, became subject to the restrictions under the Law Concerning the Examination and Regulation of Manufacture, etc. of Chemical Substances (Chemical Substances Examination Law) during 1989 ~ 1990. Organic tin compounds are therefore no longer contained in antifoulant for fishnets.
## (Shellfish poison)

Permissible maximum levels of paralytic shellfish poison and diarrhetic shellfish poison have been set respectively. Shellfish with a level of poison higher than the set standards must not be caught, marketed, sold, or otherwise provided to the public. In each fishing area of shellfish, the competent prefectural government, fishery operators, and other parties concerned monitor the amount of phytoplankton species that could cause poisoning and the accumulation of poison in the shellfish. If the amount of poison is likely to exceed the above-mentioned maximum levels, voluntary restrictions on the catch and shipment will be imposed on the relevant shellfish.

## (3) New food safety administration based on risk analysis

## (Establishment of the Food Safety Commission)

In June 2002, ministers in charge of food safety administration decided at a cabinet meeting to review and improve the food safety administration by taking action such as the creation of the Food Safety Commission (tentative name) and the establishment of the Food Safety Basic Law (tentative name).

In 2003, a bill concerning the establishment of the Basic Law on Food Safety was submitted to the ordinary session of the Diet. The law specifies the basic understanding that the protection of public health must always come first. Moreover, the concept of risk analysis has been introduced to the food safety administration. In addition, the law requires the establishment of the Food Safety Commission, which has the sole authority to assess risks.

(Separation of the risk management department from the industrial promotion department to reinforce risk management)

At each administrative agency in charge of risk management, the risk management department has been separated from the industrial promotion department to reinforce risk management. Each administrative agency has also reviewed its risk management system.

The Ministry of Agriculture, Forestry and Fisheries of Japan has also reorganized itself by separating the risk management department from the industrial promotion departments and making the risk management department into an independent organization. Regarding the field related to fisheries, the tasks concerning medical products for fishery as well as feed for cultured aquatic animals will be assigned to a new department in charge of risk management.
### 3. Active information provision to dispel anxiety of consumers

## (1) Changes in consumption of fishery products and information on products

Changes in lifestyle have led to a decrease in home cooking, change in the types of shops where fishery products are bought (from fish stores to supermarkets), and an increase in imported food. As a result, consumers, who find it increasingly difficult to obtain information on raw materials and cooking methods, have no choice but to depend more on labels.

## (2) Measures to ensure the reliability of labels

## (Effective food labeling and consumer participation)

The Law Concerning Standardization and Proper Labeling of Agricultural and Forestry Products (JAS Law) was revised in June 2002 to impose heavier punishment on mislabeling and thus to ensure effective food labeling.

In an effort to reinforce the monitoring system, the “Food Labeling Hotline” was established. As a part of such an effort, the “Food Labeling Watcher” system was created in cooperation with consumers in an attempt to promote proper food labeling.

## (Improvement and enhancement of fishery product labeling)

Further improvements have been made in the naming of fish and shellfish and the way of describing them on labels.

Since July 2000, the label of each fresh and frozen fishery product has been required to show the name and the place of origin, and also to indicate whether or not the product is “defrosted”, and “cultured” as the case may be. A review is currently being conducted on the method of indicating the place of origin on a label.

Regarding processed fishery products, the labels of 6 products, including salted mackerel, have been required to indicate the place of origin of raw-materials since February 2002. This requirement will be imposed on other products as well.

Moreover, a study is underway for the creation of guidelines for the names of fish and shellfish to be indicated on labels. Such guidelines are necessary because names of fishery products are more complex than those of other products. For example, some fish and shellfish species have a different name for each growth stage and are referred to by different names in a different region.
## Outline of the Guidelines for the Names of Fish and Shellfish (Abstract) (Interim Summary)

## (General rules)

- In principle, the species name (standard Japanese name) of a product should be stated on the label.

In the case of fish or shellfish, etc., that has a name other than the species name that is more recognizable to the public, the familiar name may be stated on the label instead of the species name. In order to prevent consumers from being confused by unfamiliar species names. Familiar names indicated on labels may be derived from genus names, family names, or other names in wide use as long as the names clearly show what the contents of the products are.

(Names according to a growth stage and season)

In the case of fish or shellfish that has a different name for a certain growth stage or season, if the name is recognizable to the general public as a name of the fishery product, it may be used for labeling.

## (Local names)

In the case of fish or shellfish that is called by a special name in a certain region, such a name may be used in the region where the local name is in general use. If the fishery product is sold in any place other than that region as well, the standard Japanese name must be printed on the label alongside the local name so that consumers can recognize the kind of fish or shellfish by checking the label.

## (Exotic species)

The names of exotic species must not mislead consumers into believing that they are better than what they really are in quality. The labels of exotic fish and shellfish, etc., should carry the names in wide use that most accurately describe the fishery products in accordance with the general rules.

Source: “Guidelines for the Names of Fish and Shellfish (Interim summary)” Fisheries Agency, March 2003
### I I. Developments in the Japanese Fisheries Industry since 2001

### 1. Supply and demand for fishery products in Japan

## (1) Domestic fishery production

(Fishery and aquaculture production)

Japan saw its fishery production decrease 4% in volume from the previous year to 6.13 million tons and also shrinks 5% in value to 1,780.3 billion yen.

Fishery and aquaculture production in volume

(Unit: 10,000 tons)

2000 (A)	2001 (B)	Increase/decrease (%) B/A
Total	638	613	$ \Delta $ 4
Marine fisheries	502	475	$ \Delta $ 5
Deep sea fisheries	86	75	$ \Delta $ 12
Offshore fisheries	259	246	$ \Delta $ 5
Coastal fisheries	158	155	$ \Delta $ 2
Marine aquaculture	123	126	2
Inland water fisheries and aquaculture	12	12	$ \Delta $ 5

Source: “Annual Statistics of Fishery and Aquaculture Production,” Ministry of Agriculture, Forestry and Fisheries

Fishery catch and aquaculture production in value

(Unit: 100 million yen)

2000 (A)	2001 (B)	Increase/decrease (%) B/A
Total	18,753	17,803	$ \Delta $ 5
Marine fisheries	12,340	11,651	$ \Delta $ 6
Deep sea fisheries	2,120	2,009	$ \Delta $ 5
Offshore fisheries	4,456	4,206	$ \Delta $ 6
Coastal fisheries	5,765	5,435	$ \Delta $ 6
Marine aquaculture	5,272	5,029	$ \Delta $ 5
Inland water fisheries and aquaculture	1,133	1,116	$ \Delta $ 2

Source: “Annual Statistics of Fishery and Aquaculture Production,” Ministry of Agriculture, Forestry and Fisheries
## (Fishery resources in waters surrounding Japan)

According to the results of a resource assessment conducted in 2002 on major fishery resources in the waters surrounding Japan, the levels of fishery resources are low for about half of the species or groups of fish on which the assessment was conducted. Resource restoration plans for such fishery resources as Spanish mackerel in the Seto Inland Sea have been implemented since 2002. Further efforts like this need to be made in the future.

## (Aquatic environment)

The aquatic environment of such areas as coastal waters, which are important for fishing and aquaculture, are threatened by factors such as the influx of wastewater from factories and households, etc., a decrease in seaweed beds and tidelands, land reclamation, and sea gravel extraction.

About 40% of the disappearance of seaweed beds has been caused by unidentified factors. According to past investigations, there are direct and indirect causes attributable to human activities. Direct causes include land reclamation, while indirect causes include stagnant water flow caused by structures in the waters and a change in the distribution of underwater sand. On the other hand, natural causes include a decrease in the clarity of water and an increase in water temperature. In addition, feeding damage has been pointed out as a cause. A technical study is currently underway in order to determine the locations of seaweed beds in wide areas through analysis of satellite images.

Regarding water quality, Biochemical Oxygen Demand (BOD) and Chemical Oxygen Demand (COD), which are major indexes of organic contamination, have improved in rivers and lakes in the past 10 years, while they have remained almost the same in the sea during the same period.

The frequency of red tide has decreased, although the average amount of damage caused by each red tide has increased. Other problems causing damage to fishery resources include the occurrences of blue tide and oil spilled from stranded ships. In addition, concern is growing about the possible effects of endocrine-disrupting chemicals on fishery resources.

The inland water fishery and ecosystem have been damaged by exotic species such as black bass, which has widened its habitat after being introduced into Japan. In order to solve this problem, it is essential that Japanese people develop a deeper understanding of fishing ground environments and ecosystem conservation of fishery products.
## (2) International trade

## (Import of fishery products)

The import of fishery products increased 8% from the previous year to 3.824 million tons in 2001. Half of the increase was attributable to an increase in imported fish meal. The value of imported fishery product stood at 1,723.7 billion yen, remaining about the same as a year earlier.

Japan is the world's largest importer of fishery products in terms of both value and volume, and its imports accounted for 26% and 13% of the world fishery product imports in 2000 respectively.

The largest exporter of fishery products to Japan has been China for the past 10 years in terms of both volume and value. In 2001, the largest imported item in terms of value was processed eel, followed by shrimp, and processed crabs, featuring an increase in processed fishery products. China has increased its presence as an exporter of fishery products in recent years and became the world's second largest exporter in terms of value in 2000.

## (Export of fishery products)

In 2001, Japan saw its fishery product exports increase by 91,000 tons (up 41%) to 313,000 tons in terms of volume and decrease by 3.2 billion yen (down 2%) to 135.2 billion yen in terms of value.

## (3) Processing and marketing of fishery products

### A. Processed fishery products

## (Production volume of processed fishery products)

While the production volume of salted or dried fishery products, especially salted mackerel and salted-dried mackerel, increased in 2001, the production volume of processed fishery products has been on the decline as a whole due in part to shrinking sales and unstable supply of raw materials.

## (Business conditions of fishery processing operators)

The number of fishery processing operators who cited increasing personnel costs or other labor-related problems as a managerial problem has decreased compared to years