Special Report No 14/2010 ‘The Commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms’
Date: 2011-03-17
Institutions: European Court of Auditors
Subjects: animal health, animal product, food hygiene, health control, health risk, import, public health, veterinary inspection

euR oPeAn   
couR t of AuditoRs

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the commission's mAnAGement of
the sYstem of VeteRinARY checKs
foR meAt imPoRts foLLoWinG the
2004 hYGiene LeGisLAtion RefoRms 

en

 
 
 
 
 
special Report no  14 

 2010

the commission's 
mAnAGement  of the 
sY stem of VeteRinARY 
checKs  foR  meAt 
imPoR ts foLL oWinG 
the 2004 hYGiene 
LeGisLA tion RefoRms  

(pursuant to Article 287(4), second subparagraph, tfeu)

euR oPeAn couR t of AuditoRs

euR oPeAn couR t of AuditoRs 
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tel. +352 4398-1
fax +352 4398-46410
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special Report no 14 

 2010

A great deal of additional information on the european union is available on the internet.

it can be accessed through the europa server (http://europa.eu).

cataloguing data can be found at the end of this publication.

Luxembourg: Publications office of the european union, 2011

isBn 978-92-9207-972-7 

doi:10.2865/60524 

© european union, 2011

Reproduction is authorised provided the source is acknowledged.

Printed in Luxembourg

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

contents

3

paragraph

AbbreviAtions

i–vi  

executive summ Ary

1–11 

introduction

12–15 

Audit scope And  Appro Ach

16–86 

observAtions

16–32 

revision of the community hygiene regulAtions relAting to meAt imports

17 

18–19 

 AVAiLABiLit Y of consoLid Ated VeRsions of the  ReLe VAnt  LeGisLA tion WouLd f AciLit Ate  
A coRRect  And unifoRm  APPLic Ation of the RuLes

 timinG  of the Amendment of decisions Affects the VeteRinARY  ceR tificAtes suBmit ted   
With meA t imPoR ts

20–26 

ReVie W of AuthoRisA tions foR  eXPoR t to the eu

27–29 

need foR  common indicAtoRs to e VALuAte VeteRinARY  AGReements

30–31 

 Reduced contR oL  RAtes shouLd  Be moRe fuLLY  justified

32 

VeteRinARY  AGReements do not  PRecL ude diffeRence of tReA tment Bet Ween  memBeR  stAtes

33–45 

informAtion systems relAting to veterinAry checks

34–37 

 oPtimisinG  the use of tRA ces dAtABAse

38–40 

mAKinG  the Best use of the  RAPid  ALeR t sY stem

41–42 

need foR  inteRf Ace Bet Ween tRA ces And  ReLe VAnt nA tionAL  dAtABAses

43–45 

 ncts — RisK  of eVAdinG  VeteRinARY  checK s

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

 
4

46–75 

 surveillAnce by the commission of the nAtionAl systems for mAnAging veterinAry 
checks

47–56 

 need foR  An  eu stRAteGY  foR  the PRePARA tion And e VALuAtion of suRVeiLLAnce  PLAns

57–59 

fees  And  PenAL ties not hARmonised

60–61 

ceR tAin BiPs hAVe  A VeRY  LoW  Le VeL  of ActiVit Y

62–64 

Limited RoLe of the inteRnAL  Audit in nAtionAL  contR oL  sY stems

65 

need foR  PeRfoRm Ance indic AtoRs to monitoR  PRoGRess on the  ‘hYGiene  PAcKAGe’ oBjectiVes

66–73 

need foR  Bet teR  tARGetinG  of BiPs  And consiGnments on the  BAsis of  RisK  AnALY sis

74–75 

RePeA ted Recommend Ations oVeR  seVeRAL  missions

76–86 

coordinAtion And evAluAtion of the veterinAry checks system

77–83 

cooRdinA tion of the memBeR  stAte VeteRinARY  checKs sY stems needs imPR oVement

84–86 

imPA ct of moRe stRinGent  eu stAnd ARds on the comPetitiVeness of  eu PRoduceRs

87–91 

conclusions And recommend Ations

reply of the commission

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

ABBRe ViA tions

5

Alop: appropriate level of sanitary protection

bip: border inspection post, within the meaning of council directives 91/496/eec and 97/78/ec  

bse: bovine spongiform encephalopathy

circA: communication and information Resource centre Administrator, a collaborative workspace with 
partners of the european i nstitutions

comext: eurostat’s reference database for external trade

cved:  common Veterinary entry  document  for  products  of  animal  origin,  within  the  meaning  of  
Annex iii to commission Regulation (ec ) no 136/2004, and live animals, within the meaning of Annex i  
to commission Regulation (ec ) no 282/2004

cwe: carcass weight equivalent

dg: directorate-General

dg Agri: directorate-General for Agriculture and Rural d evelopment

dg rtd : directorate-General for Research

dg sAnco : directorate-General for health and c onsumers

dg tAxud: directorate-General for  taxation and customs union

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

6

ABBRe ViA tions

eeA: european economic Area

efsA: european food s afety Authority

eur-l ex: online portal for european union law

eurostat: statistical office of the european union

fAo: food and Agriculture organisation of the united nations

fvo: food and Veterinary o ffice

hygiene package: the set of new legislation adopted since 2004 which mainly entered into force 
in 2006, establishing a new legislation framework for food safety in the european union

iso: i nternational organisation for s tandardisation

ncts: new c omputerised transit system

mAncp: multiannual national control plan 

potsdam g roup: working party of veterinary experts

rAsff: Rapid Alert system for feed and food, a network of national authorities, managed by the 
commission

scofc Ah: standing committee on the food chain and Animal health

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

7

ABBRe ViA tions

sps: sanitary and phytosanitary measures

tAric: online customs tariff database

trAces: tRAde c ontrol and expert s ystem

White paper: White Paper on food safety

Wto: World trade organisation

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©

The Food and Veterinary Office, based in Ireland, is a body of experts,  
mainly composed of veterinary professionals.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

 
 
8

eXecutiVe   
summARY

i.
Ve te r i n a r y   c h e c k s   o n   m e at   a n d   m e at   p ro d -
u c t   i m p o r t s   a r e   a n   i m p o r t a n t   c o m p o n e n t 
of the european union’s food safet y polic y. 
t h e r e   i s   t h e   r i s k   t h a t   i m p o r t e d   m e a t   m a y 
b e   a   v e c t o r   f o r   t h e   t r a n s m i s s i o n   o f   d i s -
e a s e s   n o t   o n l y   t o   c o n s u m e r s   b u t   a l s o   t o 
l i v e s t o c k ,   a f f e c t i n g   e u r o p e a n   u n i o n   ( e u ) 
produc tion.

ii.
W h i l e   i m p o r t s   r e p r e s e n t   l e s s   t h a n   4   %   o f 
e u  m e a t   c o n s u m p t i o n   —   a n d   t h e r e   i s   n o 
e v i d e n ce   t h a t   t h e   m a j o r   h e a l t h   c r i s e s   s u f -
f e r e d   i n   t h e   p a s t   1 5   y e a r s   h a v e   b e e n   d u e 
t o   s h o r t c o m i n g s   i n   t h e   i m p o r t   v e t e r i n a r y 
c h e c k s   —   p u b l i c   a w a r e n e s s   a n d   c o n c e r n 
w i t h   r e g a r d   t o   a n i m a l   h e a l t h   a n d   f o o d 
s a f e t y   h a v e   i n c r e a s e d   g r e a t l y.   m o r e o v e r, 
while the eu budget normally allocates 300 
million euro for veter inar y disease preven -
t i o n   a n d   e ra d i c at i o n ,   a n d   1 0 0   m i l l i o n   e u ro 
fo r   fe e d   a n d   fo o d   s a fe t y   re l ate d   m e a s u re s, 
the late 1990s cr isis (mainly bovine spong-
i fo r m   e n ce p h a l o p at hy   ( Bs e) )   i m p o s e d   ve r y 
s u b s t a n t i a l   a d d i t i o n a l   e x p e n d i t u re   o n   t h e 
eu budget as well as on the budgets of the 
m ember  s tates.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

eXecutiVe   

summARY

iii.
t h e   a u d i t   e x a m i n e d   t h e   c o m m i s s i o n ’s 
s u p e r v i s i o n   o f   t h e   e u   s ys te m   o f   ve te r i n a r y 
c h e c k s   c a r r i e d   o u t   a t   t h e   b o r d e r   i n s p e c -
t i o n   p o s t s   ( B i P s )   o n   m e a t   i m p o r t s   u n d e r 
the new framewor k introduced by the 2004 
r e g u l a t i o n s   fo r m i n g   p a r t   o f   t h e   s o - c a l l e d 
‘ hy g i e n e   p a c k a g e’,   w h i c h   c a m e   i n t o   fo r c e 
i n   2 0 0 6 .   t h e   a u t h o r i t i e s   a n d   B i Ps   o f   f o u r 
m e m b e r   s t a t e s   w e r e   v i s i t e d   (f r a n c e ,   t h e 
ne t h e r l a n d s ,   sp a i n ,   R o m a n i a )   a n d   c o u r t 
a u d i t o r s   p a r t i c i p a t e d   i n   i n s p e c t i o n   v i s i t s 
o f   t h e   c o m m i s s i o n’s   fo o d   a n d   Ve t e r i n a r y 
o f f i c e   (fVo )   c a r r i e d   o u t   i n   t h r e e   m e m b e r 
s t a t e s   ( L i t h u a n i a ,   t h e   un i t e d   K i n g d o m , 
G r e e c e ) .   s o m e   r e l e v a n t   a s s o c i a t i o n s   o f 
stakeholders were inter viewed (producers, 
i m p o r te r s,   i n d u s t r i e s   a n d   co n s u m e r s ) .  th e 
f V o ' s   p l a n n i n g   a n d   re p o r t i n g   p ro c e d u re s 
we re   t h e   s u b j e c t   o f   c l o s e   s c r u t i ny,   i n   v i e w 
o f   t h e   p a r t i c u l a r l y   re l e va nt   ro l e   i t   p l ays   i n 
t h e   co m m i s s i o n' s   s u p e r v i s i o n   a n d   co nt ro l 
of t he eu veter inar y c hec ks.

iv.
t h e   a u d i t   c o n c l u d e d   t h a t   t h e   i m p l e m e n -
t a t i o n   o f   t h e   2 0 0 4  ‘ h y g i e n e   p a c k a g e’  h a s 
been delayed and has still to be completed 
i n   i m p o r t a n t   r e g u l a t o r y   a s p e c t s .   m o r e -
o v e r,   s u b s t a n t i a l   r e d u c t i o n s   i n   t h e   l e v e l s 
o f   i m p o r t   co n t ro l s   we re   a cce p te d   i n   s o m e 
‘e q u i va l e n ce   a gre e m e nt s’  e s t a b l i s h e d   w i t h 
third countr ies which are not suppor ted by 
rea son ab le  ju st ifying  evidence.

99

eXecutiVe
summARY

v.
t h e   i n f o r m a t i o n   s y s t e m s   ( tR A d e   c o n t r o l 
a n d   ex p e r t   s y s t e m   ( tR A c e s)   a n d   R a p i d 
Aler t system for feed and food (RAsff)) on 
w h i c h   v e t e r i n a r y   c h e c k s   o n   m e a t   i m p o r t s 
r e l y   a r e   w i d e l y   a n d   u s e f u l l y   e m p l o y e d 
a c r o s s   t h e   e u .   ho w e v e r,   c e r t a i n   BiP s   i n 
t h re e   m e m b e r   s t a t e s   s t i l l   d o   n o t   e n t e r   a l l 
the relevant data. this in par ticular affec ts 
t h e   c o m p l e t e n e s s   a n d   r e l i a b i l i t y   o f   t h e 
data captured and the infor mation systems 
as a wh ole.

vi.
m a i n l y   t h r o u g h   i t s   fVo ,   t h e   c o m m i s s i o n 
c o n t i n u o u s l y   s u p e r v i s e s   t h e   v e t e r i n a r y 
c h e c k s   o n   m e at   i m p o r t s.   howe ve r,   f u r t h e r 
i n i t i at i ve s   a re   to   b e   t a k e n   by   t h e   co m m i s -
s i o n   i n   o r d e r   t o   o v e r c o m e   t h e   d e t e c t e d 
sh or tcomin gs :

—  complete the ‘ hygiene pack age’ regula -
t o r y   f r a m e wo r k   a n d   c o n s o l i d a t e   i t   i n   a 
codified, user-fr ien dly mann er ;

—  fur t her  develop tR A ce s an d R Asff and 

th eir  ut ilit ies;

—  provide fur ther guidelines and the per-
f o r m a n c e   i n d i c a t o r s   n e c e s s a r y   f o r   i m -
plementing an eu strategy for veterinar y 
checks and for determining whether the 
‘ hygiene pack age’ objec tives have been 
ac hie ved;

—  f u r t h e r   i m p r o v e   t h e   r i s k   a s s e s s m e n t 
m o d e l s   u s e d   b y   t h e   f V o   f o r   i t s   a u d i t 
wor k plan ning ;

—  succeed in ensuring that member states 
o v e r c o m e   a ny   w e a k n e s s e s   d e t e c t e d   i n 
m e a t   i m p o r t   v e t e r i n a r y   c h e c k s   i n   t h e 
sh or test reason able  per iod of ti me.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

1. 

2. 

3. 

4. 

intR oduction

10

i n  mo der n  so cie ties   foo d  safet y   h as   be co me   a   m aj or   poli tic a l 
concer n since it is indispensable to public health in countr ies 
with industrialised agriculture and highly developed agri-food 
sec to rs.  ens ur ing  th e highes t stan dards of  food safe t y  is t hus 
cle ar l y a p ol it ical  p r io r it y in t he e uropean union . 

1  White Paper on food safety, 
com(1999) 719 final, 12.1.2000.

i n t he wak e of  t he s er iou s he alth  c r ise s  of  t he  1 9 9 0 s  ( Bs e an d 
dioxin- contaminated chicken), the regulations on food safet y 
we re   t h o ro u g h l y   o ve r h a u l e d.   on   t h e   b a s i s   o f   a  W h i t e   Pa p e r 1 
published by the commission in 2000, a new legislative frame -
work , other wise k nown as the ‘ hygiene pack age’, has replaced 
or expanded upon earlier regulations. most of the new regula-
tor y p rovisions came into fo rce  on  1  jan uar y  2 0 0 6 .

impor ted meat produc ts, by their ver y nature, have a potential 
rol e  as  a  so urce  o f  and  vec tor   for   t he   tran sm is si on   of  di se as e 
not only to consumers but also to livestock , i.e. to eu produc -
tion. throughout the world there are many epizootic outbreaks 
of diseases and production conditions elsewhere do not neces-
sar ily  mee t eu s t andards. 

the   ve te r in a r y   ch ec k s   o n  i mpo r ts  into  t he  e u   an d  in  t he  cor-
responding expor ting third countries (see Graph 1) are carried 
o u t   b y   t h e   n a t i o n a l   a u t h o r i t i e s,   w i t h   t h e i r   c o s t   b e i n g   b o r n e 
mostly by the operators and ultimately by the consumer. com-
m u n i t y   e x p e n d i t u r e   i n   t h i s   a r e a   e s s e n t i a l l y   c o n s i s t s   o f   t h e 
a d m i n i s t r a t i v e   e x p e n d i t u r e   o f   d G   s A n co   a n d ,   i n   p a r t i c u l a r, 
o f   i t s   fVo ,   p l u s   e x p e n d i t u re   o n   t r a i n i n g   co u r s e s   fo r   n a t i o n a l 
i n s p e c t o r s .   t h e   e u  b u d g e t   h a s   a l s o   f i n a n c e d   t h e   s e t t i n g - u p 
and running of the infor mation systems k nown as tR A ces, re -
sponsible for monitoring impor ts of produc ts of animal origin, 
an d R Asf f .

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

11

5. 

the cost to the eu budget of health crises — which can, in prin-
ciple, result from poor implementation of the veterinary checks —  
can be par ticularly high, involving emergenc y measures which 
b y   t h e i r   n a t u r e   n e e d   t o   b e   e x t e n s i v e l y   a p p l i e d .   i n   s o m e  
periods of crisis it may work out at well over 500 million euro of 
e u   b u d g e t a r y   ex p e n d i t u re   i f   t h e   co s t   o f   ve te r i n a r y   m e a s u re s 
to   e ra d i c ate   t h e   d i s e a s e   i s   a d d e d   to   t h e   ex p e n d i t u re   o n   p ro-
gra m m e s   to   co m p e n s a te   f a r m e r s.   howe ve r,   i n   p r a c t i ce   t h e re 
is n o evid ence  t hat any o f t he maj or  he alt h  cr is es  suf fe re d by 
t h e   e u  i n   t h e   p a s t   1 5   ye a r s   h a s   b e e n   d u e   to   s h o r tco m i n g s   i n 
the per formance of impor t veterinar y checks. the origin of the 
diseases has been either inter nal to the eu or connec ted with 
illegal movements (fraud) or else failure to apply the appropri-
ate   m e a s u re s   fo r   d i s p o s i n g   o f   k i tc h e n   wa s te   i n   i nte r n at i o n a l 
tra nsp o r t.

6. 

m eat consumption and impor ts have been increasing and this 
trend is expec ted to continue at least until 2015 (see Graphs 2 
an d 3).

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

12

gr Ap h   1

m Ai n   i m p o r t s   o f   m eA t   An d   m eA t   p r o d u c t s   i n   200 9

Beef meat
(225 838 tonnes)

United States
     3 %

Botswana
4 %
Namibia
4 %
New Zealand
5 %

Australia
5 %

Paraguay
1 %

Croatia
1 %

Chile
1 %

Argentina
33 %

Brazil
18 %

Uruguay
26 %

Sheep and goat meat
(220 986 tonnes)

Uruguay
1 %

Chile
2 %

Former Yugoslav
Republic of 
Macedonia
1 %

Iceland
1 %

Poultry meat
(196 801 tonnes)

Chile
6 %

Israel
1 %

Argentina
7 %

Argentina
3 %
Australia
8 %

New Zealand
84 %

Brazil
85 %

Source: comext — trade statistics (imports), eu-27.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

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13

gr Ap h   2 

e u meA t co n s u m p t i o n pr o j e c t i o n s 2006–15 (1  000 to n n e s c We )

45 000

44 500

44 000

43 500

43 000

42 500

42 000

41 500

41 000

40 500

40 000

2006

2007

2008

2009

2010

2011

2012

2013

2014

2015

Source: data from ‘Prospects for agricultural markets and income, 2008–15’, dG AGRi.

gr Ap h   3 

e u   meA t   im p o r t   pr o j e c t i o n s   20 06 – 1 5  ( 1  0 00  to n n e s   c We )

1 850

1 800

1 750

1 700

1 650

1 600

1 550

1 500

1 450

1 400

1 350

2006

2007

2008

2009

2010

2011

2012

2013

2014

2015

Source: data from ‘Prospects for agricultural markets and income, 2008–15’, dG AGRi.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

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7. 

8. 

o verall, for the four main categories of animals, meat impor ts 
a c c o u n t   fo r   3 , 6   %   o f   c o m m u n i t y   c o n s u m p t i o n .  t h e   s h a r e   o f 
im p or t s  is   high   fo r  s heep / goat  m e at,   si gn if ic a nt   for   be ef   an d 
poultr y meat and insignificant for pork (see Table 1). the total 
val u e  o f  t he  imp or t s   for  th ese  di f ferent  categ or i es   was   3   3 7 5 
mil lio n  euro in 2009.

t h e   b a s i c   p r i n c i p l e   u n d e r l y i n g   t h e   e u  s y s t e m   o f   v e t e r i n a r y 
checks on meat impor ts is that produc ts entering the eu must 
s a t i s f y   s a n i t a r y   re q u i re m e n t s   t h a t   a r e   a t   l e a s t   e q u i v a l e n t   t o 
those laid down by the eu for its internal produc tion.  i n order 
to  e nsu re  t hat   th is  p r incip l e  is  uph el d  th e re  are  t wo  le vel s  of 
contro l.

tAb l e   1 

pr o j e c t i o n   r e gAr d i n g   i m p o r t   An d   co n s u m p t i o n   i n   e u   i n  2010 
( 1 000 to n n e s   c We 1)

Species

Imports  
forecast

%
of total imports

Consumption  
forecast

%
Imports/Consumption

Beef meat

Sheep and goat meat

Pork meat

Poultry meat

391

264

32

795

26,4

17,8

2,2

53,6

TOTAL 

1 482

8 126

1 100

20 428

11 601

41 255

4,8

24,0

0,2

6,9

3,6

1 

‘1 000 tonnes cwe’ = 1 000 tonnes carcass weight equivalent as calculated based upon agreed standards.

Source: dG AGRi, ‘short-term outlook for the arable crop, meat and dairy markets’, october 2010.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

 
15

9. 

fi r s t l y,   t o   b e   a u t h o r i s e d   f o r   i m p o r t a t i o n   i n t o   t h e   e u,   p r o d -
u c t s   o f   a n i m a l   o r i g i n   m u s t   o r i g i n a t e   f r o m   a n   e s t a b l i s h m e n t 
t h at   h a s   b e e n   a p p rove d   by   t h e   co m m i s s i o n   a n d   i s   l o c ate d   i n 
a   t h i r d   c o u n t r y   t h a t   i s   a l s o   a u t h o r i s e d   a n d   m u s t   h a v e   b e e n 
ce r tifie d  by  t he  exp or t ing  countr y 's   veter i n ar y  a ut h or i ti es   to 
t h e   e f fe c t   t h a t   t h e   co m m u n i t y   re q u i re m e nt s   h ave   b e e n   m e t . 
o ther wise, a trade facilitating ar rangement is that there is an 
‘eq u ival ence’  agreem ent  w ith   t hat   th ird  countr y,   i. e.  th e   con-
tro l   s ystem   o f  th e  t hird  countr y  h as   bee n   acce pted   by  th e e u 
as  b eing  equiva lent  to it s  own s yste m.

2  see com(1997) 183 final 
(30.4.1997) and com(1998)  

32 final (28.1.1998) on the fVo 

organisation.

3  http://ec.europa.eu/food/fvo/
ir_search_en.cfm

10.  

th e  se con d  level   o f  ch ecks  tak es  place   i n  th e   m ember   states. 
ever y consignment of go o ds mus t be pres ented  at a commis-
sion-approved BiP, where it is subject to inspection procedures 
a n d   g r a n t e d   a   c e r t i f i c a t e   b y   t h e   n a t i o n a l   ve t e r i n a r y   a u t h o r -
ities. once accepted by a B iP, the consignments can be moved 
free ly  fro m o ne  m em be r s t ate to an oth er.

11.   Ver ifying that m ember states ensure that the requirements of 
e u   l e gi s l a t i o n   o n   t h e   s a fe t y   o f   fo o d   a n d   ve te r i n a r y   p ro d u c t s 
a re   b e i n g   s a t i s f i e d   i s   t h e   re s p o n s i b i l i t y   o f   t h e   fo o d   a n d  Ve t -
er in ar y  o ff ice  ( f V o) 2,   o ne   of  t he  direc torate s  of  th e  commis -
sion’s dG  sAnco . i t has a body of exper ts, mainly composed of 
veter inar y professionals, and its inspec tions follow an annual 
wo r k p ro gramme that has  to  be drawn  up on t he  bas is  of  r is k 
a n a l y s i s   ( 2 2 8   i n s p e c t i o n s   i n   2 0 0 8 ,   o f   w h i c h   1 6 0   w e r e   i n   t h e 
m e m b e r   s t a t e s,   6 0   i n   t h i rd   c o u n t r i e s   a n d   e i g h t   i n   c a n d i d a t e 
cou nt r ies). the   fVo's  rep or t s,  wh ich   are  pu blis he d  an d  avail -
able on the i nternet 3, provide a central source of evidence for 
t h e   c o m m i s s i o n ' s   s u p e r v i s i o n   o f   e u   fo o d   s a fe t y   t h r o u g h o u t 
eu ter r ito r y. 

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

Audit scoPe And APPR oAch

16

12.  

the objective of the audit was to assess the commission's man-
a g e m e nt   o f   t h e   e u  s ys te m   o f   ve te r i n a r y   c h e c k s   fo r   m e at   a n d 
m e a t   p ro d u c t s   i m p o r t s   fo l l ow i n g   t h e   re fo r m s   o f   t h e   hygi e n e 
legisl atio n dec id ed in 2004 and  in  force  si nce 2 0 0 6 .

13.  

th e fo ll owing qu estio ns  were exam in ed :

 ο

 ο

 ο

 ο

ha s  the   re vis ion  o f  t he  commun it y  reg ulation s  in itiated 
by  th e White Pap er of 2 00 0 been  co mple te d?

d o es  t he  co mm issio n  en sure  t hat   th e  info r mati on  s ys-
te ms  re lat ing   to   veter inar y   c he c ks   o n  me at  im por ts   are 
p er fo r ming  effec tively?

d o es  t he   co mmis sio n  (fVo )   mak e  sure   th at  th e  n ation-
al   systems  fo r  managing  veter in a r y   c he c ks   are   wo r k in g 
p ro pe r l y?

d o es  th e  co mm issio n  c ar r y  out   it s  role  of  coo rdin ati on 
b et we en  the   m em b er  states   and  mak e  general  e valua -
t ion s o f t he sanitar y c he ck  s ystem  for   meat  im por ts ? 

14.  

i n   a d d i t i o n ,   w h e n   c a r r y i n g   o u t   i t s   wo r k ,   t h e   co u r t   c o l l e c t e d 
i n fo r m a t i o n   o n   h o w   t h e   c o m m i s s i o n   t a k e s   i n t o   a c c o u n t   t h e 
i nte re s t s   o f   t h e   va r i o u s   s t a k e h o l d e r s   ( p ro d u ce r s,   p ro ce s s o r s, 
impor ters, consumers) when considering the stipulations spe -
cific  to  t he  c o mmu nit y reg ulation s.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

17

15.  

th e fo ll owing au dit wor k  was car r ie d out  in  2 0 0 9 :

 ο

 ο

 ο

 ο

examination of relevant dG  sAnco ac tivities, in par ticular 
those car r ied out by the fVo;

vis it s   to   the  res p ons ible  auth or i tie s   and   BiPs   in   four 
m e m b e r   st ate s   (f ra n ce,   t h e   ne t h e r l a n d s,   sp a i n   a n d  
R o man ia);

par ticipation in fVo audits which took place in Lithuania, 
the united K ingdom and Greece; 

inter views w it h as so ciat ions  re pres ent ing  rele vant  st ake -
ho l ders   (pro ducers,   impor ters,   in dus tr i es   and   con s um -
ers ) 4.

4  uecBV (european Livestock 
and meat trading union), coPA 

(committee of Professional 

Agricultural organisations)-

coGecA (General confederation 

of Agricultural cooperatives 

in the european union), ciAA 

(confederation of the food and 

drink industries of the european 

union)-cLitRAVi (Liaison centre for 

the meat Processing industry in the 

european union), Beuc (european 

consumers’ organisation).

s
r
o
t
i
d
u
A
f
o
t
r
u
o
C
n
a
e
p
o
r
u
E
©

Every consignment of goods must transit a Commission-approved BIP.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

 
 
 
 
oBseRVA tions

18

re v i s i o n   o f  t h e   co m m u n i t y   h yg i e n e 
re g u l At i o n s   r e l At i n g  to   m eA t   i m p o r t s

16.  

t h e   W h i t e   Pa p e r   o n   f o o d   s a f e t y   f o r e s a w   t h e   r e v i s i o n   o f   t h e 
regulations on food safet y, most of which have been replaced 
by the new legislative framework k nown as the ‘ hygiene pack-
age’. the fo l lowing  p aragrap hs exam in e  w he th e r  th e re le vant 
changes introduced in the ‘hygiene pack age’ were implement-
ed and reflec ted in the veterinar y agreements with third coun-
tr ies.

AvAi l Ab i l i t y   o f   co n s o l i d At e d  v e r s i o n s   o f 
t h e   r e l e vAn t   l e g i s l At i o n  W o u l d   fAc i l i tAt e 
A   co r r e c t   An d   u n i f o r m   Ap p l i c At i o n   o f  t h e 
r u l e s 

17.  

t h e   r u l e s   g o ve r n i n g   i m p o r t s   o f   m e a t   a n d   m e a t   p ro d u c t s   a re 
conta ined in more th an 50  l egislative  tex t s,  to wh ich  must  be 
a d d e d   ve te r i n a r y   a gre e m e nt s   ( s e e   Ta b l e   2 ) .   i n   p a ra gra p h   6 7 , 
t h e  Wh i te   Pa p e r   u n d e r l i n e s   t h a t   i n d i v i d u a l   l e gi s l at i o n   n e e d s 
to be clear, simple and understandable for all operators to put 
into effect. however, in the absence of consolidated versions —  
o r   e ve n   a   w h o l e s a l e   re fo r m u l at i o n   o f   t h e   i m p o r t   r u l e s   —   t h e 
s h e e r   n u m b e r   o f   r u l e s   a n d   t h e i r   c u r r e n t   c o m p l e x i t y   c r e a t e 
d i f f i c u l t i e s   a n d   g i v e   r i s e   t o   a   v a r i e t y   o f   i n t e r p r e t a t i o n s   t h a t 
pre vent  t hem  fro m  b eing  ap plie d  i n   a  s i ng le   cor rec t  man n er. 
this is the case, for example, for the prac tical rules for mak ing 
r e i n fo r c e d   c h e c k s,   w h i c h   d G   s A n co   a n d   t h e   m e m b e r   s t a t e s 
have ret u r ned to rep eatedl y s in ce  1 9 9 7  (s e e B ox  1) . 

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

19

ti m i n g   o f  t h e   Am e n d m e n t   o f   d e c i s i o n s 
Af f e c t s  t h e  v e t e r i nAr y   c e r t i f i c At e s 
s u b m i t t e d  Wi t h   m eA t   i m p o r t s 

18.   A s   t h e   p u r p o s e   o f   t h e   h y g i e n e   r e g u l a t i o n s   i s   t o   g u a r a n t e e 
a   h i g h   l e v e l   o f   p r o t e c t i o n   i n   m a t t e r s   o f   f o o d   s a f e t y,   i t   i s  
i m p o r t a n t ,   a n d   r e q u i r e d   b y   A r t i c l e   1 ( g )   o f   R e g u l a t i o n   (e c ) 
no 852/2004, that third countries should cer tify that the foods 
they expor t are of the same or equivalent hygiene standard as 
food produced in the eu. i f the conditions for the cer tification 
o f   i m p o r t s   a re   n o t   u p d ate d   at   t h e   co r re c t   t i m e,   i t   i s   p o s s i b l e 
t h at   t h e   p ro d u c t s   co n ce r n e d   w i l l   n o t   b e   s u b j e c t   to   t h e   s a m e 
r ig o rou s p ro du c tio n and  co ntrol  req ui re me nt s.

19.  

t h e   o b l i g a t i o n   f o r   v e t e r i n a r i a n s   i n   t h e   c o u n t r y   o f   o r i g i n   t o 
c o n f i r m   t h a t   m e a t   s a t i s f i e s   t h e   h y g i e n e   r e g u l a t i o n s   ( w h i c h 
entered  into   fo rce  o n  1  ja nuar y   200 6 )  did  not  t ake  ef fec t  un -
til   Aug u st  200 6  i n  th e  c a s e  of  poultr y,  n ovember   20 06   in  t he 
case   o f  me at   p ro du c ts  an d  july  20 08   in  th e  c ase  of  fresh   and 
pro ces sed  m eat  ot her t han poult r y.

b o x   1 

le g i s l At i o n   o n   r e i n f o r c e d   c h e c k s   u n c l eAr

Article 24 of council directive 97/78/ec sets out the rules for reinforced checks, which can be launched 
by a RAsff message after an infringement has been detected at a BiP. it requires that ‘member states 
shall carry out more stringent checks on all consignments of products from the same origin. in particu-
lar, the next 10 consignments from the same origin must be impounded, and a deposit lodged against 
inspection costs, at the border inspection post for a physical check, including the taking of samples and 
the laboratory tests provided for in Annex iii.’ 

however, it was found that the procedure related to the reinforced checks is implemented differently by 
member states. some member states take only the next 10 consignments from the same type of prod-
uct at the same BiP where the error occurred, others take the next 10 at any BiP in their territory from 
the same type of product and origin or even establishment up to a maximum period of six months and 
others take only the next three consignments as they consider it to be not just a national but rather a 
european issue. As the legislation is not precise enough and is interpreted differently, there is neither a 
single, harmonised approach within the eu nor is it possible to monitor the process or assess the con -
trols by dG  sAnco or the  fVo . indeed, the fVo may well not be in a position to check that there is no 
systematic problem with goods from the same origin coming into the eu, especially if they enter the eu 
through various BiPs in several m ember states.

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special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

20

2 0 .  

21.  

22.  

23.  

re v i e W   o f   Au t h o r i sA t i o n s   f o r   e x p o r t  to  t h e   e u 

i n   2 0 0 4   t h e   Pa r l i a m e nt   a n d   t h e   co u n c i l   a d o p te d   a   d i re c t i ve 5 
v a l i d a t i n g   t h e   l i s t s   o f   a p p rove d   e s t a b l i s h m e n t s   a n d   a u t h o r -
i s e d   t h i r d   c o u n t r i e s   t h e n   i n   e x i s t e n c e   u n t i l   s u c h   t i m e   a s 
t h e   hyg i e n e   re g u l a t i o n s   c a m e   i n t o   fo rc e   o n   1   ja n u a r y   2 0 0 6 , 
s t a t i n g   t h e   fo l l o w i n g   re s e r v a t i o n :  ‘ Pe n d i n g   t h e   a d o p t i o n   o f 
t h e   n e c e s s a r y   p r o v i s i o n s   o n   t h e   b a s i s   o f   R e g u l a t i o n s   (e c ) 
no  8 5 2 / 2 0 0 4 /e c 6,   no  8 5 3 / 2 0 0 4 /e c 7  a n d   no   8 5 4 / 2 0 0 4 /e c 8,   o r 
di re c t i ve   2 0 0 2 / 9 9 /e c 9’.

the established procedure for expanding the list of establish -
ments approved for expor t to the eu was that the third countr y 
authorities must cer tify that each new establishment satisfied 
the  req uirements  of  th e hygiene re g ul ati on s. however, at  t he 
t i m e   o f   t h e   a u d i t   t h e   c o m m i s s i o n   h a d   n o t   y e t   r e v i e w e d   t h e 
a u t h o r i s a t i o n s   t h a t   h a d   b e e n   gr a n te d   to   t h i rd   co u n t r i e s   a n d 
establishments before 2006 — i.e. before the ‘hygiene pack age’ 
e n t e r e d   i n t o   f o r c e .   t h e   p u r p o s e   o f   t h i s   r e v i e w   w a s   t o   a l l o w 
t h e   co m m i s s i o n   to   ve r i f y   t h e   e q u i v a l e n ce   o f   t h e   t h i rd   c o u n -
tries' legislation and control systems with the new community 
re q u i re m e nt s.   no r   h a d   t h e   co m m i s s i o n   ye t   co m p l e te d   i t s   re -
wo r k i n g   o f   t h e   g u i d e l i n e   c o n c e r n i n g   t h e   i n fo r m a t i o n ,   w h i c h 
t h i rd   c o u n t r i e s   we re   t o   p ro v i d e   o n   t h e   g e n e r a l   o r g a n i s a t i o n 
an d p er fo r mance o f c hec ks.

t h e  ‘ h y g i e n e   p a c k a g e’  w a s   a d o p t e d   a t   t h e   e n d   o f   2 0 0 4   a n d 
c a m e   i n t o   fo r c e   o n   1   ja n u a r y   2 0 0 6 .   A t   t h e   t i m e   o f   t h e   a u d i t 
( e n d   o f   2 0 0 9 )   t h e   co m m i s s i o n   m a n a g e d   to   re n e g o t i ate   t h re e 
o f   t h e   1 1   a g re e m e n t s   p re v i o u s l y   e x i s t i n g   i n   t h i s   s e c t o r   w i t h 
the  eu ’s  majo r t rading p ar tn ers 10.

t h e   a u d i t   e x a m i n e d   fo u r   o f   t h e   m o s t   i m p o r t a n t   s u c h   a g re e -
ments  (w it h canad a, new  Zea lan d,  t he   usA and  switzer lan d), 
w h i c h   a re   s h o w n   i n   Ta b l e   2 .  th e   t e x t   o f   t h e   a g re e m e n t s   w a s 
s c r u t i n i s e d ,   t h e   h e a d s   o f   t h e   d e p a r t m e n t s   w h i c h   h a d   t a k e n 
p a r t   i n   n e g o t i a t i o n s   w e r e   i n t e r v i e w e d   a n d   i n f o r m a t i o n   w a s 
obtained from the competent authorities in the member states 
vis ite d. 

5  directive 2004/41/ec of the 
european Parliament and of the 

council of 21 April 2004 repealing 

certain directives concerning food 

hygiene and health conditions for 

the production and placing on 

the market of certain products of 

animal origin intended for human 

consumption and amending 

council directives 89/662/eec and 

92/118/eec and council decision 

95/408/ec (oj L 157, 30.4.2004, 

p. 33, (corrigendum oj L 195, 

2.6.2004, p. 12).

6  Regulation (ec) no 852/2004 
of the european Parliament and 

of the council of 29 April 2004 on 

the hygiene of foodstuffs (oj L 139, 

30.4.2004, p. 1, (corrigendum  

oj L 226, 25.6.2004, p. 3).

7  Regulation (ec) no 853/2004 
of the european Parliament and of 

the council of 29 April 2004 laying 

down specific hygiene rules for 

food of animal origin (oj L 139, 

30.4.2004, p. 55, (corrigendum  

oj L 226, 25.6.2004, p. 22).

8  Regulation (ec) no 854/2004 
of the european Parliament and 

of the council of 29 April 2004 

laying down specific rules for the 

organisation of official controls on 

products of animal origin intended 

for human consumption (oj L 139, 

30.4.2004, p. 206, (corrigendum  

oj L 226, 25.6.2004, p. 83).

9  council directive 2002/99/ec of 
16 december 2002 laying down the 

animal health rules governing the 

production, processing, distribution 

and introduction of products of ani-

mal origin for human consumption 

(oj L 18, 23.1.2003, p. 11).

10  Andorra, canada, chile, eeA 
states, faeroe islands, Liechtenstein, 

mexico, new Zealand, san marino, 

switzerland and the usA.

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special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

21

tAb l e   2 

ve t e r i nAr y   Ag r e e m e n t s   e x Am i n e d

Third Country

Date of entry into  
force

Date of first amendment taking  
account of the ‘hygiene package’  
regulations

1. Canada

17.12.1998

Imports (2009)  
in tonnes
(Comext data)

11 073

2. New Zealand

 26.2.1997

3. Switzerland

1.6.2001

4. USA

1.8.1999

 ο

 ο

 ο

1.9.2006  (Agreement)  Commission  Decision 
2006/854/eC of 26 July 2006 approving on behalf 
of the european Community amendments to 
Annexes V and VIII to the Agreement between the 
european Community and New Zealand on sanitary 
measures applicable to trade in live animals and 
animal products.

Certificates) Commission Decision 
25.12.2006 (
2006/855/eC of 24 August 2006 amending Decision 
2003/56/eC on health certificates for the importa-
tion of live animals and animal products from New 
Zealand.

entry into force) Decision No 1/2006 of 
1.12.2006 (
the Joint Veterinary Committee created by an agree-
ment between the european Community and the 
Swiss Confederation on trade in agricultural products 
of 1 December 2006 amending Appendices 1, 2, 3, 4, 
5, 6 and 10 to Annex 11 to the Agreement .

222 698

19 475

14 780

Sources: 

 http://ec.europa.eu/food/international/trade/agreements_en.htm  
http://eur-lex.europa.eu/en/index.htm 
http://www.wto.org/english/tratop_e/sps_e/decisions06_e.htm 

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

11  Article 46(1) of Regulation (ec) 
no 882/2004: ‘such official controls 

shall have particular regard to: 

… (g) the extent and operation 

of official controls on imports of 

animals, plants and their products’.

22

24.   n a t u r a l l y,   t h e   s u c c e s s   o f   n e g o t i a t i o n s   a l s o   d e p e n d s   o n   t h e 
other par t y. nonetheless, owing to the length of the negotia -
t i o n s   —   w h i c h   t h u s   p o s t p o n e d   t h e   a p p l i c at i o n   to   i m p o r t s   o f 
t h e   s a m e  ‘ h y g i e n e   p a c k a g e’  r u l e s   t h a t   w e r e   c o m p u l s o r y   f o r 
eu producers — the audit found that the reviewed agreement 
with new Zealand did not take effec t until eight months af ter 
t h e   p a c k a g e   e n t e re d   i n t o   fo rc e,   d e s p i t e   t h e   f a c t   t h a t   t h e   e u 
a cce p te d   to   m a i nt a i n   a   re l at i ve l y   l i m i te d   l e ve l   o f   c h e c k s   ( fo r 
w h i c h   n o   a c c e p t a b l e   r e a s o n   w a s   g i v e n   i n   t h e   c o m m i s s i o n ' s 
record s).

25.   dG  sAnco has no data o n the physic al pre - expor t c h ec k s ( la-
borator y analyses) that were made in canada and new Zealand 
o n   p r o d u c t s   b o u n d   f o r   t h e   e u.   m o r e o v e r,   t h e   r e p o r t s   a v a i l -
able from the food and Veter inar y o ffice (fVo ) do not usually 
i n c l u d e   a n   e va l u at i o n   o f   t h e   ex te nt   a n d   o p e rat i o n   o f   o f f i c i a l 
c o n t r o l s   b y   t h i r d   c o u n t r i e s   o n   t h e i r   o w n   i m p o r t s   o f   a n i m a l 
pro du c t s 11.

26.   howe ve r,   t h e   eu ro s t at   f i g u re s   fo r   2 0 0 8   s h ow   t h at   t h e   un i te d 
K i n g d o m   i m p o r te d   1 1 1   9 3 0   to n n e s   o f   s h e e p   m e a t ,   i n c l u d i n g 
8 2  8 9 8   t o n n e s   f r o m   ne w   Ze a l a n d   ( a r o u n d   7 7   % )   w h i c h   w e r e 
re d i s t r i b u t e d   t o   t h e   o t h e r   m e m b e r   s t a t e s.   d e s p i t e   t h e   s c a l e 
o f   t h e s e   i m p o r t s   to   t h e   e u,   t h e   co m p e te nt   a u t h o r i t i e s   i n   t h e 
united K ingdom informed the  cour t ’s auditors that, in contra -
vention of the general rule that identity checks are to be made 
i n   a l l   c a s e s,   s o m e   BiPs   c h e c k e d   o n l y   2   %   o f   co n s i gn m e n t s   — 
the same rate as for physical checks. this prac tice was justified 
by t he fac t  th at t he agreement wi th  ne w Zealand in cludes no 
def init io n of ide nt it y  chec ks. 

ne e d   f o r   co m m o n   i n d i c Ato r s  to   e vAlu At e 
v e t e r i nAr y   Ag r e e m e n t s 

27.   Where evaluations were in favour of maintaining equivalence, 
t h e y   w e r e   p e r f o r m e d   w i t h o u t   f i r s t   d e f i n i n g   q u a l i t a t i v e   o r 
q u a n t i t a t i v e   i n d i c a t o r s .   no   o b j e c t i v e   c o m p a r i s o n   w a s   m a d e 
be t wee n t he  level  of  s anitar y  prote c ti on (ALoP ) con fe r red by 
t h e   n e w   h y g i e n e   r e g u l a t i o n s ,   t h e   l e v e l   t h a t   e x i s t e d   b e f o r e 
t h e   p a c k a g e   a d o p t i o n   a n d   t h e   l e v e l   o f   p r o t e c t i o n   a c h i e v e d 
b y   m e a n s   o f   t h e   c o n t r o l   s y s t e m s   i m p l e m e n t e d   b y   t h e   t h i r d 
cou nt r ies t hat  were p ar t y to  an  agre e me nt.

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28.  

fo r  examp le,  new   Zeal and' s  legislation   was  rev ie we d  ag ain st 
the hygiene regulations by a technical work ing group compris-
i n g   r e p r e s e n t a t i v e s   f r o m   dG   sAn co ,   e x p e r t s   f r o m   ne w   Ze a -
l a n d   a n d   t h e   Po t s d a m   G r o u p 1 2  ( m e m b e r s   f r o m   t h e   c o m m i s -
sion, Greece, finland and the united Kingdom).  the evaluation 
c o n c l u d e d   t h a t   ne w   Ze a l a n d ' s   l e g i s l a t i o n   w a s   s u c h   t h a t   t h e 
‘hygiene pack age’ objec tives could be met. the annexes to the 
agreem ent  we re  then  amen ded  accordin g ly,  an d   equivale n ce 
wa s  maint ained.  however,   th ere  was  n o  detailed  do c um ent a -
tion demonstrating that the conclusions of the work ing group 
an d t he Po tsdam G rou p  were bas ed  on  e vi de n ce th at a llowed 
‘ Yes -1’  equivale nce 13 to  b e m aint ained.

29.  

Las tl y,   the  audit   foun d  th at  the re  was  no  comm on   pro ced ure 
for  re vis io n  b ase d  on   q uantitat ive  an d  qual it ati ve  in di cator s, 
a n d   t h at   t h e re   w a s   n o   re co rd   t h at   t h e   o b s e r vat i o n s   m a d e   by 
th e  f V o   in   th e  co urs e  o f   i ts   contro ls  h a d  be en   t ak en  i nto   ac -
cou nt  du r ing  neg otiat ions. 

12  the group was set up to assess 
the degree of equivalence of third 

country legislation. it is composed 

as decided by the council (note 

10225/08 AGRiLeG 91) and 

comprises representatives from the 

council and the commission and 

experts from a limited number of 

member states chosen with regard 

to the third country concerned.

13  ‘Yes-1’ means that equivalence 
has been recognised and a 

simplified certificate may be used; 

‘Yes-2’ means that equivalence 

is recognised subject to a 

number of production and/or 

control conditions; ‘Yes-3’ means 

that equivalence is recognised 

in principle and subject to 

certain specific conditions, with 

certification similar to that required 

from other third countries with 

which there is no agreement.

b o x   2 

m Ai n   d i f f i c u lt i e s   f o r   r e v i e Wi n g  t h e   s p s   Ag r e e m e n t s

usA : legal difficulties for the application of the ‘hygiene package’, for the harmonisation of audit fre -
quency and for agreeing on the methodology for the verification of the equivalence.

switzerland: most of the eu hygiene provisions have been transposed into the swiss legislation. how-
ever, since it is not yet a member of the RAsff (Rapid Alert system for food and feed), switzerland has 
to use other communication procedures (through dG  sAnco or via the  ciR cA system). forthcoming 
negotiations should overcome this situation.

new Zealand: the updated agreement did not come into force until eight months after the ‘hygiene 
package’. moreover, the agreement provides for a very low level of controls which has not, however, 
been based on a documented risk analysis.

canada: the delay in updating the agreement annexes in line with the ‘hygiene package’ was caused 
by difficulties in establishing equivalence, the need to make amendments to the canadian legal texts 
and publication delays.

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re d u c e d   co n t r o l   r At e s   s h o u l d   b e   m o r e   f u l ly 
j u s t i f i e d 

30.  

t h e   k e y   c o m m u n i t y   r u l e s ,   w h i c h   i n c l u d e   t h e   p r o v i s i o n s   o f 
R e g u l a t i o n   (e c )   no   1 3 6 / 2 0 0 4 1 4  a n d   di r e c t i v e   9 7 / 7 8 /e c 1 5,   r e -
quire veterinar y officials to carr y out systematic documentar y 
and identit y checks. these shall be supplemented by physical 
checks of animal produc ts at entr y into the territor y of the eu. 
i n   t h e   c a s e   o f   m e a t   i m p o r t s   f r o m   c a n a d a   a n d   ne w   Z e a l a n d , 
t h e   f r e q u e n c y   o f   p hy s i c a l   c h e c k s   h a s   b e e n   r e d u c e d   t o   1 0   % 
an d  2  %  re spe c t ivel y.  however,  where   no  specific  dec is i on   o r 
equivalence agreement exists the rate is 20 % (fresh pork , beef 
an d veal, sheep  and  ho rs e meat)  or  5 0  %  (poult r y ) . 

14  commission Regulation (ec) 
no 136/2004 of 22 january 2004 

laying down procedures for 

veterinary checks at community 

border inspection posts on products 

imported from third countries (oj L 

21, 28.1.2004, p. 11).

15  council directive 97/78/ec of 18 
december 1997 laying down the 

principles governing the organisation 

of veterinary checks on products 

entering the community from third 

countries (oj L 24, 30.1.1998, p. 9).

b o x   3 

A p p l i c At i o n   o f   r e d u c e d   p h ys i c Al   i n s p e c t i o n   r At e s 

Where reduced physical inspection rates are applied, the consignment selection method varies from one 
member state to another. Generally speaking, checks should take due account of the results of statis-
tical sampling and relevant risk factors16; often planning is left to the discretion of inspectors at BiPs. in 
france, the central veterinary authority has drawn up a selection grid which shows how consignments 
should normally be prioritised for verification. the advantage of this procedure is that it guarantees that 
selection will be random and unpredictable. According to the french authorities this procedure was not 
followed by the Roissy BiP, which is the busiest in terms of number of consignments.  in the netherlands, 
by contrast, sampling is done randomly and electronically at the moment a pre-notification is entered. 
to improve the effectiveness of checks, the dutch electronic selection system factors in a range of sub-
populations, such as ‘product type’ and ‘third country of origin’. 

in spain, the frequency of physical checks exceeded the statutory reduced rates by 20 % to 30 %, yet 
the percentage of consignments found to be non-compliant was not necessarily higher 17. similarly, in 
Romania around 36 % (compared with the standard rate of 20 % in third countries, 10 % in canada and 
2 % in new Zealand) of red meat consignments were checked physically in 2008. there was also no cen-
tral verification procedure to ensure that thresholds were reached, and the selection procedure offered 
no guarantees that the consignments to be inspected were selected at random. 

16  Relevant risk factors include the risk to human health from the product or its packaging, the probability of non-compliance with the stated 
requirements, the target consumer group, the extent and nature of any further processing of the product, the exporting country's inspection and 

certification arrangements, and the compliance record of the third country producers and importers.

17  in 2008, for example, three consignments (meat and milk) out of a total of 4 694, or 0,06 %, were refused following a physical check. the overall 
figure for consignments refused was 0,63 % (eu average: 0,88 % in 2006). 

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

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18  new Zealand national chemical 
Residues and contaminant Report 

(eu) of december 2008.

25

31.  

t h e   a u d i t   f o u n d   t h a t   t h e   r e s u l t s   o f   t h e   l a b o r a t o r y   a n a l y s e s 
c a r r i e d   o u t   a s   a   c o m p o n e n t   o f   p h y s i c a l   c h e c k s   —   i n i t i a t e d 
b y   a   BiP   i n   t h e   m e m b e r   s t a t e s   a n d / o r   b y   t h e   t h i rd   c o u n t r i e s 
t h e m s e l ve s   p r i o r   to   ex p o r t   —   we re   n o t   s u b j e c te d   to   s t at i s t i-
c a l   a n a l ys i s   ( e. g.   co n t a m i n a n t s   d e te c te d,   o r i gi n   o f   t h e   m e a t , 
p o i n t   o f   e n t r y ) .   su c h   a n   a n a l y s i s   c o u l d   f o r m   t h e   b a s i s   o f   a 
m o re   o b j e c t i ve   r i s k   a s s e s s m e n t   a n d   wo u l d   u n d e n i a b l y   b e   o f 
u s e   i n   n e g o t i a t i o n s   w i t h   t h i r d   c o u n t r i e s   —   e i t h e r   t o   j u s t i f y 
the   frequ enc y  o f  p hys ical   ch ecks   by   BiPs   or   to  prov ide   great -
e r   s u p p o r t   w h e n   d e t e r m i n i n g   w h a t   t y p e   o f   a n a l y t e   t o   l o o k 
for  in  imp or ted  foo dst uffs. to  give  an  idea  of  the   impor tan ce 
o f   ex p l o i t i n g   t h i s   k i n d   o f   s t at i s t i c a l   d at a ,   o n e   re p o r t   s u b m i t -
te d   i n   ne w   Ze a l a n d 1 8  s h owe d   t h at   1 0 1   o u t   o f   1 0 3   s a m p l e s   o f 
s h e e p   te s te d   p o s i t i ve   fo r   h o r m o n e s   d e s p i te   b e i n g   u n d e r   t h e 
maximu m  residu e  l imit. these   dat a  lend  g ood  s uppor t   to  t he 
notion that the BiPs that are most concer ned should ac t more 
sel ec tive ly w hen  tak ing samples  for  c h ec k i n g.

ve t e r i nAr y   Ag r e e m e n t s   d o   n ot   p r e c lu d e 
d i f f e r e n c e   o f  t r eA t m e n t   b e t We e n   me m b e r 
st At e s 

32.  

the agreement with canada did not guarantee that there would 
b e   n o   d i s c r i m i n a t i o n   a m o n g   m e m b e r   s t a t e s ,   a s   a t   t h e   t i m e 
of   the   audit   t he   canad ian  auth or ities  h ad  not  yet   auth o r is ed 
i m p o r t s   f r o m   fo u r   m e m b e r   s t a t e s .   s i m i l a r l y,   t h e   a u t h o r  i t i e s 
i n   t h e   u sA ,   w h e r e   e x p o r t   c o n t r o l s   a r e   a   m a t t e r   f o r   n a t i o n a l 
d e p a r t m e n t s ,   t r e a t   e a c h   m e m b e r   s t a t e   a s   a   s e p a r a t e   e n t i t y, 
a l t h o u g h   a l l   m e m b e r   s t a t e s   a r e   o b l i g e d,   u n d e r   t h e   t e r m s   o f 
the cur rent agreement, to accept meat impor ts from the usA. 
i n   o n e   m e m b e r   s t a t e   j u s t   o n e   s l a u g h t e r h o u s e   h a d   b e e n   a p -
proved for expor t to the usA. fur thermore, 11 member states' 
applications for equivalence, the earliest of which was lodged 
b a c k   i n   2 0 0 0 ,   h a d   n o t   y e t   b e e n   a p p r o v e d   b y   t h e   u s  a u t h o r -
ities. 

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in f o r m At i o n   s ys t e m s   r e l At i n g  to 
v e t e r i nAr y   c h e c k s 

33.  

th e   e u  f i n a n ce s   t h e   s e t t i n g   u p   a n d   m a i nt a i n i n g   o f   t h e   i n fo r -
mat io n  systems   k now n  as tR A ce s  ( tR Ade  control  and  exper t 
s y s t e m ) ,   u s e d   f o r   m o n i t o r i n g   i m p o r t s   o f   a n i m a l   o r i g i n ,   a n d 
R Asf f  ( R apid  Al er t   syste m  for  feed  and  food).  th e  followin g 
paragraphs examine whether these systems fully meet the ob-
j e c t i ve s   o f   t h e  ‘ hygi e n e   p a c k a g e’  a n d,   i n   t h e   c a s e   o f  tR A c e s, 
whe th er the system contr ibutes  to d ec i si on- mak in g.

op t i m i s i n g  t h e   u s e   o f   t r Ac e s   d AtAb As e

34.   d espite tR A ces’ contr ibution to the har monisation of control 
pro ced ures  in  t he  eu,   so me  m ember   states   still  prefer   to  use 
t h e   n o n -tR A c e s - co m p at i b l e   s o f t wa re   t h e y   d e ve l o p e d   d u e   to 
t h e   l a c k   o f   s o m e   f u n c t i o n a l i t i e s   d e e m e d   i m p o r t a n t   fo r   t h e i r 
c o n t r o l s .   A l t h o u g h   c o m p u l s o r y,   s o m e   BiPs   i n   G e r m a n y,   t h e 
ne th er l ands   and  spa in  do   not  yet  enter  all  th e  re le va nt  m eat 
i m p o r t   d a t a   i n t o  t R Ac e s .  t h i s   a f fe c t s  t R Ac e s’  c o m p l e t e n e s s 
an d,   inter  al ia ,  the  rel iab il it y  of   it s  s tat is ti c al  out put.  m oreo -
ve r,  in mo st m em b er st ate s n o link has  been  est ablishe d wi th 
t h e   c u s to m s   d at a b a s e s   a l l ow i n g   fo r   t h e   re co n c i l i at i o n   o f   t h e 
d a t a   o n   m e a t   i m p o r t s   r e g i s t e r e d   i n   b o t h   s y s t e m s .  t h e   c o m -
m i s s i o n   m a n a g e s   t R A c e s   a t   e u   l e v e l   a n d   c o n t r i b u t e s   t o   i t s 
f i n a n c i n g   a n d   d e v e l o p m e n t   ( 2 , 2 5   m i l l i o n   e u r o   i n   2 0 0 9 ) .  t h e 
a u d i t   re ve a l e d   t h at   f u r t h e r   d e ve l o p m e nt s   a re   s t i l l   n e e d e d   to 
o v e r c o m e   t h e   e x i s t i n g   t e c h n i c a l   s h o r t c o m i n g s   c o n c e r n i n g , 
fo r   i n s t a n c e,   t h e   a c c e s s   s e c u r i t y   r e q u i r e d   fo r   u s i n g   tR A c e s, 
the elec tronic issuing of cer tified c Veds ( common Veter inar y 
ent r y   d o c u m e nt s )   a n d   t h e   p ro d u c t i o n   o f   s t at i s t i c s   u s e f u l   fo r 
carr ying out risk analyses so as to focus veterinar y inspec tions 
better.

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19  the importance of that link is 
identified namely by Articles 5 

and 6 of commission Regulation 

(ec) no 282/2004 of 18 february 

2004 introducing a document for 

the declaration of, and veterinary 

checks on, animals from third 

countries entering the community 

(oj L 49, 19.2.2004, p. 11) and 

Articles 6 and 7 of Regulation (ec)  

no 136/2004.

20  certifying officers are persons 
who are accredited or approved 

by the cA in the exporting country 

to draw up and issue official 

certificates.

21  With the exception of a limited 
number of third countries and 

small quantities that are intended 

for personal consumption, the 

community rules do not authorise 

imports of meat or meat products 

by private individuals unless they 

have submitted a prior declaration 

and a veterinary certificate.

35.  

the development of tR A ces should have fur ther explored the 
w a y s   a n d   m e a n s   t o   l i n k   a n d / o r   e n s u r e   t h e   n e c e s s a r y   r e c o n -
c i l i a t i o n   b e t w e e n   t h e   r e l e v a n t   d a t a   p r o c e s s e d   f o r   c u s t o m s 
p u r p o s e s   a n d   t h e   d a t a   c a p t u r e d   b y  tR A c e s 1 9.  t h e   m a i n   r e a -
s o n s   g i ve n   to   e x p l a i n   t h e   o n g o i n g   d i f f i c u l t i e s   re l a t e d   to   t h e 
c u s t o m s’  s p e c i f i c   re q u i re m e n t s   i n   re s p e c t   o f   t h e   c o d e s   u s e d 
fo r   i d e n t i f y i n g   p ro d u c t s.   ne ve r t h e l e s s,   i t   b e c a m e   c l e a r   f ro m 
a  pil o t   p ro jec t  ru n  in  col l ab oration   w it h  fren ch   c ustoms   th at 
the  exis ting  inter face p robl ems  could  be ove rcom e.

36.  

th e   v i s i t s   to   m e m b e r   s t ate s   re ve a l e d   t h at   t h e   u s e   o f  tR A c e s 
i s   l i m i te d   e s p e c i a l l y   a s   re g a rd s   t h e   fo l l ow i n g   p o s s i b l e   r a n g e 
of  us efu l fu nc t ion s:

(a) 

the selec tion of consignments for random or non-random 
physical checks, with and/or without laborator y analysis; 

(b) 

the obligation to per form reinforced checks and monitor-
ing  o f su ch c hec ks ;

(c) 

automatic compliance and authentication checks of veter-
inar y  cer tificates  by,  for  example,  cross- check ing  the  data 
e n t e re d   b y   t h e   i s s u i n g   t h i rd   c o u n t r y   ( c e r t i f i c a t e   n u m b e r, 
i d e n t i f i c a t i o n   —   c e r t i f y i n g   o f f i c e r ' s   e - m a i l   a d d r e s s   a n d 
m o d e l   s i g n a t u re 2 0,   m o d e l   s t a m p   o f   t h e   c e r t i f y i n g   d e p a r t -
ment); 

(d ) 

t he p o ssib ilit y of  scannin g ir regu lar  cer t if ic ate s; 

( e ) 

t h e   p o s s i b i l i t y   o f   e n t e r i n g   a   1 0 - d i g i t   tA Ri c  ( c u s t o m s  
n o me ncl atu re) code; 

(f ) 

au to matic  c ross - c hec ks  with  c us to ms  d ata ; 

(g) 

sim pl if ic atio n of  the p rocedure for  enter in g  produc t s  im-
p o r t e d   b y   p r i v a t e   i n d i v i d u a l s   i n   e xc e s s   o f   t h e   d u t y - f r e e 
l imit 21; 

(h) 

the  possibilit y  of  stating  the  place  of  first  or igin  of  reim-
por t ed  ship me nt s; 

(i) 

the possibilit y of enter ing in detail the reasons why a BiP 
has  refu sed to all ow  an impor t; 

( j) 

t he u nifo r m  au tomat ic c alcu latio n  of   fee s  a n d pen alti es ;

(k) 

t h e   c o m p u l s o r y   e n t e r i n g   o f   i n t r a - co m m u n i t y   s h i p m e n t s 
o f   i m p o r t e d   fo o d s t u f f s ,   w h i c h   w o u l d   e n a b l e   t h e m   t o   b e 
mo re s wif tl y re cal l ed in an  eme rg en c y.

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28

37.   G e n e r a l l y   s p e a k i n g,   u s e r s   c a n   o n l y   a c c e s s   t h o s e   s e c t i o n s   o f 
tR A c e s  w h i c h   c o n c e r n   t h e m .   ho w e v e r,   i n   2 0 0 7   a n   e x t e r n a l 
s t u d y 2 2  h i g h l i g h t e d   t h e   n e e d   f o r   p e r i o d i c   a u d i t s   o f   t h e   s y s -
tem’s  sec u r it y.  Wh ere  meat  impor t s  a re  concer ne d, tR Ace s  is 
u s e d   b y   ne w   c a l e d o n i a ,   m e x i c o   a n d   ne w   Ze a l a n d.   ho we ve r, 
t h e   eu ro p e a n   fo o d   a n d   s a fe t y   Au t h o r i t y   ( e f sA)   d i d   n o t   h ave 
d i re c t   a cce s s   to  t R Ac e s   w h e n   i t   n e e d e d   to   g at h e r   d at a   i n   a l l 
areas  wit h a  direc t  o r in direc t impa c t  on  food s afe t y.

22  Gartner france, ‘hosting traces 
project’, 2007, dG sAnco.

23  the commission was waiting 
for the judgment of 29 october 

2009 by the court of first instance 

of the european communities in 

Commission v. Bowland Dairy  

Products Ltd.

m Ak i n g  t h e   b e s t   u s e   o f  t h e   r Ap i d   Al e r t 
s ys t e m 

38.  

th e  R As ff  comp il es  al l   ad mis sible  al er t s  t hat   are   is sued   by   a 
member state and/or third countries. however, the conditions 
in which member states can issue an aler t may not be formally 
est ab l ished until  2011 23.

)

O
C
N
A
S
G
D

(
n
o
i
s
s
i

m
m
o
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a
e
p
o
r
u
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©

RASFF compiles all admissible alerts that are issued by  
a Member State or third country.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

 
 
 
 
29

39.  

t h e   a u d i t o r s   f o u n d   t h a t   t h e r e   w a s   w i d e s p r e a d   s a t i s f a c t i o n 
w i t h i n   t h e   un i o n   co n ce r n i n g   t h e   u t i l i t y   a n d   o p e rat i o n   o f   t h e 
R Asff system.  however, the intensit y of  m ember states' reac -
tions to aler ts issued by other member states varied according 
to their inter pretation of the application of reinforced checks 
a n d   t h e  ‘q u a l i t y ’  o f   t h e   a l e r t .   fo r   e x a m p l e ,   fr a n c e   d o e s   n o t 
launch reinforced checks unless the issuing countr y shares its 
cr iter ia fo r anal ys is.

40.   o v e r a l l ,   t h e r e   i s   n o   c l e a r l y   u n d e r s t o o d   s e t   o f   r u l e s   r e l a t i n g  
t o   t h e   R As f f ,   e i t h e r   f o r   l a u n c h i n g   a n   a l e r t   o f   a   r i s k   t o  
h u man health at national level or for consequently launching 
i t   i n   a l l   m e m b e r   st ate s.  th e re   i s   a   s i m i l a r   l a c k   o f   co n s i s te n c y 
as   re gard s  im plementing   more  st r i ng e nt  c h ec ks   followi n g  an 
a l e r t   o r   l a u n c h i n g   a n   e n q u i r y   u n d e r   t h e   s u p e r v i s i o n   o f   t h e 
commission’s responsible ser vices. the audit revealed that, in 
one case of meat expor ted to the eu that was repor ted by the 
national author ities in the third countr y of or igin, the system 
w a s   n o t   c a p a b l e   o f   r e s p o n d i n g   s u f f i c i e n t l y   e a r l y   t o   t r i g g e r 
r e i n f o r c e d   c h e c k s   a n d   e n s u r e   t h a t   a l l   t h e   m e a t   i n   q u e s t i o n 
wa s wit hheld  fro m the mar k et an d ret ur n ed  to t h e countr y  of 
o r i g i n .  t h e   m e m b e r   s t a t e s   w e r e   n o t   a c t u a l l y   i n fo r m e d   u n t i l 
one week later, the commission's special prevention ar range -
m e nt s   ( e.g.   t h e   s a fe g u a rd   ce l l )   were  n o t   a c t i vate d,   a n d   t h e re 
wa s t he refo re a del ay in  t he launch  of  rei nforced  ch eck s.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

30

24  comext is eurostat's reference 
database for external trade.

25  ncts (new computerised 
transit system) — decision 

no 105/2000/ec of the european 

Parliament and of the council of 

17 december 1999 amending 

decision no 210/97/ec adopting 

an action programme for customs 

in the community (customs 2000) 

and repealing council decision 

91/341/eec (oj L 13, 19.1.2000,  

p. 1).

26  ‘transit’ is defined in the 
veterinary rules as relating to 

shipments between two third 

countries via the territory of the eu.

ne e d   f o r   i n t e r f Ac e   b e t We e n   t r Ac e s   An d 
r e l e vAn t   nA t i o nAl   d AtAb As e s

41.  

i t  is  s t ill   diffic ul t,  fo r  a  numb er   o f   re aso ns   lin ke d  to  th e  r ule s 
a n d   r e q u i r e m e n t s   o f   i n t e r n a t i o n a l   t r a d e,   t o   c r o s s - c h e c k   t h e 
dat a in  tR A c es ag ainst c u stoms in for mat ion :

 ο

 ο

 ο

 ο

co mp any  dat abas es  are n ot  un iver s ally  acces sible ;

t he  inter nat ion al  rul es   do  not   re qui re  sh ipme nts   ( ma r i-
t ime o r o t her w ise)  to  b e  de sc r ibe d  in  de t ail;

t here  is   n o  ob l igat io n  to  enter   th e   10 - d igi t  tARic  code 
for  imp o r te d  g o ods   o n  th e  s um ma r y   de c larati on   ( m ani -
fest );

natio na l  custo ms  dat a  are   n ot  au tom ati c ally   t ran sfe r red 
in real  t ime to  dG  tAXud . m oreover, t he  customs  se r vice 
o f the  final de stination wh ich  rele ase s  t he  im por ted  me at 
may  not   be   t hat   of   th e  m ember   state  th roug h  wh ic h  t he 
me at  entere d the e u .

42.  

i t is generally the case that the member states have not estab -
lished national procedures for reconciling the data in tR A ces 
(e. g.  vo lu me  o f  m eat  imp or ts)   w it h  t hos e   l ogg e d  in   local  s ys-
tems or customs records, in comext 24 and/or by the third coun-
t r y   i n s p e c t i o n   b o d i e s.   fo r   e x a m p l e,   t h e   v i s i t   to   t h e   Le   hav re 
BiP   r e v e a l e d   t h a t ,   w h e r e a s   t h e   n a t i o n a l   d a t a b a s e   r e c o r d e d 
so me 14 560 con signment s of me at im por te d for  h uman  con -
sumption in 2008, the corresponding figure in the local system 
wa s 14  750.

n c t s   —   r i s k   o f   e vAd i n g  v e t e r i nAr y   c h e c k s 

43.  

th e   n c t s 2 5  i s   a   c o m p u t e r i s e d   s y s t e m   t h a t   w a s   i n t ro d u c e d   i n 
20 03  to   enab le  b us iness es   to  ente r   data  on   t he   move me nt   of 
goods ‘in transit ’ 26, for which final clearance may take place at 
a ny   i nte r n a l   c u s to m s   o f f i ce   o f   d e s t i n at i o n   rat h e r   t h a n   at   t h e 
point o f entr y into  the e u .

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

27  dG(sAnco)/ 2009-8203 - mR –  
finAL (slovenia); dG(sAnco)/ 

2009-8085 - mR – finAL (sweden); 

dG(sAnco)/ 2009-8081 - mR – 

finAL (Lithuania).

31

44.  

th e  rel evant  co mm unit y  le gislat ion  does  not   re qui re   a tARic 
c o d e   t o   b e   g i v e n   w h e n   a n   e n t r y   i s   m a d e   i n   t h e   n c t s.   i n   t h e 
a b s e n c e   o f   f i l t e r s   w h i c h   w o u l d   a l l o w   d e c l a r a t i o n s   o f   g o o d s 
c o n c e r n e d   b y   t h e   s a n i t a r y   l e g i s l a t i o n   t o   b e   i d e n t i f i e d ,   i t   i s 
ent irel y po ss ib le fo r cl earance to t ak e pla ce al th oug h  no vet-
er in ar y  ch ecks  were  made  w hen   th e   g oods   e nte re d  t he   e u.  i t 
is at the discretion of each customs administration to examine 
its operations and internal struc ture and decide whether such 
fil ters   sho ul d  b e  s et   u p.   fo ll owin g  a  recent  incident   in  wh ic h 
go o ds im po r ted  by air were  for ward ed  e ls ewh e re  by  road  be -
fo re   b e i n g   i n s p e c te d,   t h e   sp a n i s h   c u s to m s   a u t h o r i t i e s   m o d i -
fied t heir nat ion al nc ts so  th at shipm ents of th is s or t  c an be 
d e te c te d   a n d   s u b j e c te d   to   ve te r i n a r y   c h e c k s   a s   s o o n   a s   t h e y 
enter t he cou ntr y.

45.  

s e v e r a l   fVo  r e p o r t s 2 7  d r a w   a t t e n t i o n   t o   t h e   a b s e n c e   o f   a p -
propriate filters in national nc tss.  despite this, there has still 
be en n o amendment to remedy  t h is  omi ss ion  i n  e u law.

su r v e i l l An c e   by  t h e   co m m i s s i o n   o f 
t h e   nA t i o nAl   s ys t e m s   f o r   m AnA g i n g 
v e t e r i nAr y   c h e c k s

46.  

ea c h   m e m b e r   s t a t e   i s   re q u i re d   t o   p re p a re   a   m u l t i a n n u a l   n a -
tio nal  co nt rol  p l an in ord er to promote a  con si stent, com pre -
h e n s i v e   a n d   i n t e g r a t e d   a p p r o a c h   fo r   i t s   o f f i c i a l   c o n t r o l s   o n 
the   fee d  and  food  c hain ,  as  well  as   on   th e  i mple me ntati on   of 
l e g i s l a t i o n   o n   a n i m a l   h e a l t h   a n d   a n i m a l   we l f a re,   a n d   o n   i m -
por ts.

ne e d   f o r   An   e u   s t r At e g y   f o r  t h e   p r e pAr At i o n 
An d   e v Alu At i o n   o f   s u r v e i l l An c e   p l An s 

47.  

to date, the commission has not taken the initiative to provide 
guidelines (e.g. for har monised sampling and laborator y test-
ing) for the draf ting of the national monitor ing plans defined 
i n   R e g u l a t i o n   (e c )   no   1 3 6 / 2 0 0 4 ,   w h i c h   i s   l e f t   e n t i re l y   t o   t h e 
d i s c r e t i o n   o f   t h e   m e m b e r   s t a t e s .   A l t h o u g h   t h e   fVo  v e r i f i e s 
through its audits that such plans exist and are being applied 
in  p rac t ice, it do es not examine  th e ir  rel evan ce  in  d eta il. 

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

32

48.  

i t wa s fo un d th at t he n atio nal m on itor i n g plan s  a re pre pare d 
on  t he   b asis  of   a  r isk  an al ys is  an d  th e  re sult s  of   t h e  ana lyse s 
w h i c h   n a t i o n a l   l a b o ra to r i e s   a re   a cc re d i te d   to   p e r fo r m .   how -
ever, it depends on the member state whether the risk analysis 
takes account of the elements of direc tive 96/23/ec 28 (findings 
of national residue monitor ing plans) and of R egulations ( ec ) 
no  2073/2005 29, no 466/2001 30 and no 1881/2006 31 (existence 
of eu or international rapid aler ts and  efsA scientific opinions, 
a n d   t h e   c h a ra c te r i s t i c s   a n d   f i n d i n g s   o f   a n d   r i s k s   re ve a l e d   by 
third countr y residue plans 32). m oreover, the plans were of ten 
fou nd to  suffer fro m b udg et ar y  con st rai nts.

28  council directive 96/23/ec 
of 29 April 1996 on measures to 

monitor certain substances and 

residues thereof in live animals 

and animal products and repealing 

directives 85/358/eec and  

86/469/eec and decisions 89/187/eec  

and 91/664/eec (oj L 125, 

23.5.1996, p. 10).

29  commission Regulation (ec) 
no 2073/2005 of 15 november 

2005 on microbiological criteria for 

foodstuffs (oj L 338, 22.12.2005,  

p. 1).

tAb l e   3 

di f f e r e n t   l e v e l s   o f   l Ab o r Ato r y   AnAlys i s

Number of consignments subjected  
to laboratory analysis / number of loads × 100  
(approximate percentage)

Country

Red meat

White meat

Remarks

2008

Lithuania

France

Spain

Greece

≤ 10 %

3 %

every 10th consignment sampled 

two analyses made systematically 

0,4 %

1,8 %

Plan provided for 5 % analysis rate

0,02 % to 0,2 %

0,02 % to 0,5 % 

1 % of physical checks

Netherlands

≤ 1,0 % residue + ≤ 0,5 % microbiology

% calculated on number of analyses not number of 
consignments sampled 

Romania

1 % to 3 % planned depending on category of goods

Data on testing unavailable

United
Kingdom

0,02 % to 0,2 %

0,02 % to 0,5 % 

1 % of physical checks  
(e.g. 0,02 % of meat from New Zealand)

Source: data collected during on-the-spot audits in the member states. 

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

30  commission Regulation (ec) 
no 466/2001 of 8 march 2001 

setting maximum levels for certain 

contaminants in foodstuffs (oj L 

77, 16.3.2001, p. 1).

31  commission Regulation (ec) no 
1881/2006 of 19 december 2006 

setting maximum levels for certain 

contaminants in foodstuffs (oj L 

364, 20.12.2006, p. 5).

32  http://ec.europa.eu/food/
food/chemicalsafety/residues/

third_countries_en.htm#3

33

49.  

for instance, it was found that the united Kingdom and  spanish 
plans   do   no t   s pec ify  p ar t icu lar  t y pes   of   an aly te   to  be  look e d 
f o r   b y   t h i r d   c o u n t r y   o f   o r i g i n .   i n   sp a i n ,   L i t h u a n i a   a n d   R o -
m a n i a ,  me anw hil e,  where the  ch oice of tes ts  is  lim ite d by  t he 
c a p a c i t y   o f   l a b o r a t o r i e s   t o   p e r fo r m   c e r t a i n   a n a l y s e s,   a n d / o r 
whether they have the accreditation to do so, the monitor ing 
plans   for  2008  did   n ot   cover  the   de te c ti on  i n  m eat   of  ce r ta in 
c a t e g o r i e s   o f   h o r m o n a l   r e s i d u e   ( a n a b o l i c s )   a n d / o r   e nv i r o n -
m e n t a l   c o n t a m i n a n t s   ( d i ox i n s,   h e av y   m e t a l s ) .   L a s t l y,   G re e c e 
h a d   n o t   y e t   d r a w n   u p   a   n a t i o n a l   m o n i t o r i n g   p l a n ,   a n d   a s   a 
resu l t th e ve te r inar ians  at G reek  BiPs th em se lve s d eter m in e d 
whic h an alyte s they wo u l d be see k i ng.

50.   According to the french authorities, increases in the work load 
of cer tain BiPs might cause them to exhaust their budgets be -
fore the end of the year and thus be unable to implement their 
m o n i to r i n g   p l a n s   i n   f u l l,   m e a n i n g   t h at   t h e   c h o i ce   o f   a n a l ys i s 
c o u l d   b e   d i c t a t e d   b y   f i n a n c i a l   r a t h e r   t h a n   s c i e n t i f i c   c o n s i d -
erations. i t was found at one R omanian BiP that just 20 of the 
63  laborator y analyses provided for in the 2008 plan had been 
c a r r i e d   o u t .   o w i n g   t o   b u d g e t a r y   c o n s t r a i n t s ,   t h e   2 0 0 9   p l a n 
now  co nt ained jus t 44.

51.  

e u  l e g i s l a t i o n   d o e s   n o t   s e t   m i n i m u m   p e rc e n t a g e s   e i t h e r   fo r 
overal l  nu mb ers  o r fo r each t ype of l aborator y  te s t to be pe r-
formed by volume, type of produc t or place of origin. however 
i t   fo re s e e s   t h at   i m p l e m e nt i n g   d e c i s i o n s   w i l l   b e   a d o p te d   s e t-
ting har monised sampling and laborator y testing. As a result, 
the   pe rcent ag e  o f  l ab orator y  an alys es   th at   a re  to  be   m ade   i s 
sp ecif ied in  the  natio nal  mo nitor in g  pla n.  Value s for  t he  var i-
ous levels of laborator y tests that were planned and/or carried 
o u t   i n   2 0 0 8   i n   t h e   m e m b e r   s t a te s   v i s i te d   d u r i n g   t h e   o n - t h e -
sp ot  au dit  are given in Table  3.

52.   dif fe rent   m em be r  st ate s  op erate  different   sur veilla n ce   st rat-
egies. some use a sampling frequency calculated on the number 
of impor t consignments and/or the nature/origin of the prod -
u c t   c o n c e r n e d,   w h i l e   p e r h a p s   a l s o   a l l ow i n g   s o m e   d i s c re t i o n 
to BiP veter inar ians.  o thers tie the sampling frequenc y to the 
p hy s i c a l   c h e c k i n g   r a t e   s p e c i f i e d   i n   e u  l aw,   i n   w h i c h   c a s e   l a-
b o r a t o r y   t e s t s   m a y   b e   p a r t i c u l a r l y   r a re   o n   fo o d s t u f f s   f ro m   a 
t h i rd   co u n t r y   w i t h   w h i c h   t h e   e u  h a s   s i g n e d   a n   sPs  ( s a n i t a r y 
a n d   p h y t o s a n i t a r y   m e a s u r e s )   a g r e e m e n t   ( e . g.   0 , 0 2   %   i n   t h e 
case  o f m eat  from new Zeal an d). 

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

34

53.  

t h e   a u d i t   a l s o   r e v e a l e d   t h a t   t h e   i m p o r t   c o n t r o l s   i n   m e m b e r 
states did not always cover the entire distr ibution chain from 
t h e   p o i n t   o f   e n t r y   ( BiP )   to   t h e   f i n a l   co n s u m e r,   v i a   t h e   b o d i e s 
re s p o n s i b l e   fo r   l o a d i n g   ( w h i c h   a re   re q u i re d   to   co m p l e te   ce r -
t a i n   fo r m a l i t i e s   w i t h   c u s t o m s / BiPs ) ,   s h i p p e r s,   i m p o r t e r s   a n d 
distributors. i t was also found that no reference is made to the 
o b j e c t i ve s   o f   t h e   m u l t i a n n u a l   n a t i o n a l   co n t ro l   p l a n   (m An cP ) 
defined in Ar ticle 42 of R egulation (ec ) no 882/2004 when as -
sessing the results given in the annual repor ts which the mem-
ber s tates submit under Ar ticle 44 of the same regulation.

54.   A l t h o u g h   t h e   m a i n   r e s p o n s i b i l i t y   fo r   a   c o n s i g n m e n t ' s   e n t r y 
into  t he eu l ies w ith th e imp or ter, th at re spo ns i bilit y i s o f te n 
s h a re d   w i t h   s h i p p i n g   a n d / o r   c u s t o m s   a g e n t s,   w h i c h   t a k e   o n 
tasks such as the giving of prior notification and the presenta -
tio n o f sh ip me nt s  to  the BiP. 

s
r
o
t
i
d
u
A
f
o
t
r
u
o
C
n
a
e
p
o
r
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©

Customs take on tasks such as the presentation of shipments to the BIP.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

 
 
 
 
35

33  com(2010) 441 final, 25.8.2010.

34  Annex c, Article 1(f), of the Wto 
agreement on the application 

of sanitary and phytosanitary 

measures provides that ‘any fees 

imposed for the procedures on 

imported products should be 

no higher than the actual cost 

of the service’. Paragraph 18 of 

fAo standard cAc/GL 20-1995 

provides that ‘... any fees imposed 

by importing countries should 

be limited to what is reasonable 

and necessary’. chapter 6, 

paragraph 87, of the WPfs states: 

‘guarantees should be introduced 

to ensure that fees are used only 

for the financing of controls’. 

35  food chain evaluation 
consortium (fcec) from April 

to november 2008, Agra ceAs 

consulting.

55.   dG  sAnco has no data on the results of checks made at these 
‘s t a k e h o l d e r s’  i n   t h e   s h i p p i n g   p r o c e s s,   d e s p i t e   t h e   f a c t   t h a t 
t h e y   m u s t   b e   a b l e   t o   p rov i d e   e v i d e n c e   o f   t h e   t r a c e a b i l i t y   o f 
go o ds  and sto re t hem in ap propr iate  con d it ion s.

56.  

57.  

58.  

59.  

the results that were obtained and included in the annual re -
por ts were not sufficiently assessed in terms of the objec tives 
s e t   o u t   i n   t h e   m An cPs .   t h e   f i r s t   c o m m i s s i o n   a n n u a l   r e p o r t 
refer red to in Ar ticle 44(6) of R egulation (ec ) no 882/2004 on 
the implementation of integrated multiannual national control 
plans  was p ub lis hed on 25 August  2 0 1 0 33. 

fe e s   An d   p e nAlt i e s   n ot   hAr m o n i s e d 

i n   l i n e   w i t h   Wo r l d   tr a d e   o r g a n i s a t i o n   ( W to )   a n d   fo o d   a n d 
Agr i c u l t u re   org a n i s a t i o n   o f   t h e   un i te d   na t i o n s   (f Ao)   g u i d e -
line s,  the  co mm issio n ha d s tated in  it s Whi te  Pape r 34 th at t he 
fee s  ap pl ied  to  i mp or t   controls  sh ould  be  lim ite d  to  t h e  cost 
of those controls and that they should be applied in a uniform 
m a n n e r   s o   a s   to   avo i d   d i s to r t i n g   t ra d e.   i n   p ra c t i ce,   h owe ve r, 
Ar t icl e  27  o f  R eg ul at ion   (ec )   no  8 82 /20 04   requires  th e  m em-
b e r   s t a t e s   e i t h e r   t o   c h a r g e   fe e s   o n   i m p o r t s   a t   t h e   m i n i m u m 
est ab l ished  rates  o r  to  cover  th e   cos ts   occas ion e d  by   of f ic i al 
contro l s.

t h e   a u d i t   r e v e a l e d   t h a t   t h e   co m m i s s i o n   d o e s   n o t   h a v e   p r e -
cise infor mat io n  on  w hethe r the  cos ts  of cont rols  cor re s pond 
closely to the fees collec ted, especially where a member state 
a p p l i e s   r a t e s   l o w e r   t h a n   t h e   e s t a b l i s h e d   m i n i m a .   i n   t w o   o f 
the   fo ur  m em b er  st ate s  visited,  the  audit  also  foun d   t h at  th e 
co m p e te n t   n a t i o n a l   a u t h o r i t i e s   we re   u n a b l e   to   d e m o n s t r a t e 
b y   m e a n s   o f   f i n a n c i a l   s u p p o r t i n g   d o c u m e n t s   t h a t   t h e   s t a t u-
tor y  eu  ta rg e t  o f  a   bal ance  bet wee n  control  ex pe nd i ture   an d 
r e v e n u e   h a d   b e e n   a c h i e v e d .   A   r e c e n t   s t u d y 3 5  m a d e   f o r   t h e 
commission has also shown that the calculation methods used 
by t he m em b er s t ate s are  wanting  in  tran sparenc y.

i n   t h e   s a m e   w a y   a s   w i t h   fe e s ,   i t   i s   i m p o r t a n t   t o   a v o i d   t r a d e 
d i s t o r t i o n s   b y   h a r m o n i s i n g   t h e   p e n a l t i e s   t h a t   c a n   b e   i m -
p o s e d   w h e n   c o n t r o l s   r e v e a l   s h o r t c o m i n g s .   t h e   a u d i t   f o u n d 
t h a t ,   i n   t h e   c o u r s e   o f   i t s   o n - t h e - s p o t   c h e c k s,   t h e   fVo  d e t e r -
m i n e s   w h e t h e r   p e n a l t i e s   a r e   a v a i l a b l e   a n d   a r e   a c t i v e l y   a p -
plied against businesses that are at fault. however, no general 
g u i d e l i n e s   o r   g o o d   p ra c t i ce s   h ave   b e e n   d e f i n e d   i n   t h i s   a re a , 
and the commission's ser vices were unable to give an opinion 
as to whether the various schemes that are implemented in the 
m em b er s t ate s are  pro po r t ional an d h ave  di ss uasi ve  fo rce.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

36

36  iso 19011: 2002 ‘Guidelines 
for quality and/or environmental 

management systems auditing’, 

international organisation for 

standardisation, 1 october 

2002; iso 9000: 2000, ‘Quality 

management systems — 

fundamentals and vocabulary’, 

international organisation for 

standardisation, december 2000.

37  commission decision  
2006/677/ec of 29 september 2006 

setting out the guidelines laying 

down criteria for the conduct 

of audits under Regulation (ec) 

no 882/2004 of the european 

Parliament and of the council 

on official controls to verify 

compliance with feed and food law, 

animal health and animal welfare 

rules (oj L 278, 10.10.2006, p. 15).

ce r t Ai n   b i ps   hA v e   A  v e ry   lo W   l e v e l   o f   Ac t i v i t y

60.   As   re g ards  t he  set ting -u p   of  t he   BiPs,   c ase s  were  de tec te d  i n 
s p a i n ,   G r e e c e   a n d   R o m a n i a   w h e r e   t h e   t r a n s a c t i o n s   w e r e   s o 
in signif icant t hat  th e n eed for s uch  BiPs  — wh ic h  re qui re  t h e 
permanent availabilit y of experienced and updated exper ts —  
i s   c a l l e d   i n t o   q u e s t i o n .   i n   f a c t ,   s o m e   B i Ps   e x i s t   f o r   i n t e r n a l 
re a s o n s   n o t   re l a t e d   to   m a n a g e m e n t   e f f i c i e n c y   o r   c o n t ro l   e f -
fec tiveness, and no cost/benefit analysis is available to justify 
the ir remaining in  ac t ivit y.

61.   moreover, the audit on the spot has also shown that frequently 
BiPs have no access to the databases or relevant par ts thereof 
a v a i l a b l e   t o   t h e   c u s t o m s   s e r v i c e s .   t h i s   h i n d e r s   t h e i r   a b i l i t y 
to   e a s i l y   c ro s s - c h e c k   i f   a l l   re l e v a n t   co n s i gn m e n t s   h ave   b e e n 
pre no tified  to  the BiP  fo r veter in ar y  c h ec k s.

li m i t e d   r o l e   o f  t h e   i n t e r nAl   Au d i t   i n 
nA t i o nAl   co n t r o l   s ys t e m s

in three out of the four member states visited without the fVo  
inspec tors, the internal control func tion was not appropriately 
o rg a n i s e d   a n d   d i d   n o t   o p e rate   i n   a cco rd a n ce   w i t h   e i t h e r   t h e 
app l ic ab le   eu  re gu l at ion s  (e.g.  R eg ulatio n  (e c )   no  8 8 2/20 0 4) 
or the relevant iso standards 36 (e.g. existence of an audit plan, 
a description of tasks, quality control arrangements, an organ-
ised follow-up, a super vision audit committee). m oreover, the 
commission has issued guidelines 37 for national internal audits 
i n   l i n e   w i t h   t h e   a b ove m e n t i o n e d   s t a n d a rd s   b u t   t h e y   a re   n o t 
binding and they are not appropr iately applied. the pr inciple 
o f   t h e   i n t e r n a l   a u d i to r s’  i n d e p e n d e n ce   w a s   n o t   re s p e c t e d   i n 
t wo  of  the  four   abovementioned  m ember   states   since  th e  in-
ter nal  audito rs were not  p laced  un de r  th e  di rec t  depe n de nce 
of the highest level of the hierarchy of the competent national 
aut ho r it y.

62.  

  4

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

38  one of the objectives referred 
to in chapter 6 (paragraph 91) of 

the White Paper reads as follows: 

‘there is therefore a clear need 

for a community framework of 

national control systems … this 

community framework would have 

… community control guidelines. 

these would … [set] community 

indicators of performance.’

37

63.  

the deficiencies detec ted in the member states' internal audit 
pro ced ures incl u de:

(a ) 

p l a n n i n g   o n   t h e   b a s i s   o f   i n f o r m a l   r i s k   a n a l y s e s   (sp a i n ,  
R o m a n i a ) ,   w i t h o u t   a l l o w a n c e   f o r   t h e   w o r k l o a d   o f   BiP s  
(Romania) or slavishly following a five -year cycle (Lithuania);

(b) 

a u d i t s   n o t   fo c u s e d   o n   t h e   o b j e c t i v e s   i n   t h e   m An cPs ,   o r 
focusing on the compliance of installations rather than on 
t hat  o f t he cont rol  p roce dure s a c t uall y  in  place ;

(c) 

c o n t r o l s   c a r r i e d   o u t   b y   j u s t   o n e   i n s p e c t o r   w h o   m a y   b e 
ins uff icientl y  t rain ed  in   per for mi ng   vete r in a r y  c he c ks   on 
me at  imp o r t s;

(d ) 

c o n t r o l   r e p o r t s   w h i c h   d o   n o t   c o n f o r m ,   i n   s t r u c t u r e   a n d 
c o n t e n t ,   t o   g e n e r a l l y   a c c e p t e d   p r a c t i c e ,   e s p e c i a l l y   a s 
r e g a r d s   t h e   d e s c r i p t i o n   o f   s h o r t c o m i n g s   a n d   t h e   i d e n -
t i f i c a t i o n   a n d   p r i o r i t i s a t i o n   o f   t h e   n e c e s s a r y   c o r r e c t i v e 
me asu res.

64.  

i f   t h e   a u d i t   m e t h o d s   a n d   t e c h n i q u e s   c u r r e n t l y   i n   u s e   a t   t h e 
f V o   w e r e   b r o u g h t   i n t o   l i n e   w i t h   t h e   i n t e r n a l   a u d i t s   o f   t h e 
member state authorities carr ying out impor t checks, the fVo  
wo u l d   b e   a b l e   t o   t a k e   a c c o u n t   o f   t h e   re s u l t s   o f   t h o s e   a u d i t s 
a n d   a d j u s t   t h e   f re q u e n c y   o f   i t s   v i s i t s   a n d / o r   t a rg e t   t h e   we a k 
links in the control chain with a view to improving the control 
pro ced ure.

ne e d   f o r   p e r f o r m An c e   i n d i c Ato r s  to   m o n i to r 
p r o g r e s s   o n  t h e  ‘ h yg i e n e   pAc k Ag e ’  o b j e c t i v e s 

65.   co nt ra r y to  wh at was affir med  in  t h e Wh ite  Pape r 38, th e com -
m i s s i o n   h a s   n o t   y e t   d e f i n e d   p e r f o r m a n c e   i n d i c a t o r s   f o r   n a -
t i o n a l   co n t ro l   s ys te m s.  Wh e re   t h i rd   co u nt r y   e x p o r te r s   to   t h e 
eu  a re  co nce r ned,  t here  has  als o  be en   n o  for mal  ad opt ion   of 
p e r f o r m a n c e   i n d i c a t o r s   i n   r e l a t i o n   t o   t h e   c o n t r o l s   m a d e   a t 
ever y s tag e in t he p ro duc t ion  cha in  pr i or  to ex por t.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

39  commission decision  
2001/881/ec (oj L 326,  

11.12.2001, p. 44) was repealed by 

commission decision 2009/821/ec  

(oj L 296, 12.11.2009, p. 1),  

but the principles set out in 

paragraph 3 remain relevant for 

risk analysis.

38

ne e d   f o r   b e t t e r  t Ar g e t i n g   o f   b i ps   An d 
co n s i g n m e n t s   o n  t h e   b As i s   o f   r i s k   AnAlys i s

66.   Ar ticle 2 of commission decision 2001/881/ ec as amended by 
com miss io n  d ec isio n  2005/1 3/ec  of  3   jan uar y   2 0 05  st ates   in 
paragrap h 3 39 th at  ‘i ns pe c t io ns by t he commiss ion  veter in ar y 
exp er ts  w il l  b e b ased  up o n asse ss me nt of  all  re le vant f ac tor s 
as  de t aile d in  p aragrap h 4  an d t h e potenti al r i sk s  a nd  i mpac t 
o f   t h o s e   f a c t o r s   f o r   a n i m a l   h e a l t h   a n d   p u b l i c   h e a l t h   i n   t h e 
com mu nit y ’ and  in p aragrap h 4 : ‘ th e commiss ion  est ablis hes 
des tinatio n  an d  frequ enc y   p r ior i ti es   wh e n  pl an ni n g  m is si ons 
o f   t h e   fo o d   a n d   Ve t e r i n a r y   o f f i c e ,   t a k i n g   i n t o   a c c o u n t   t h e 
h i s t o r y   o f   p r e v i o u s   i n s p e c t i o n s   m a d e   i n   a n y   m e m b e r   s t a t e , 
t h e   d at a   co l l e c te d   u n d e r   t h e  tR A c e s  s ys te m ,   i n fo r m at i o n   re -
p o r te d   by   m e m b e r   st ate s   u n d e r   co m m i s s i o n   R e g u l at i o n   (e c ) 
no 74 5/ 2004 and t he fol lowin g para me te r s:

 ο

 ο

 ο

 ο

t he  qu ant it at ive  and  qualitat ive   patte r n s   o f  t rade   con-
cer ning   any  m em be r  st ate,   in cluding   th e  t ype  an d  spe -
cie s o f animals o r o f p roduc t s con ce r ne d,  an d  th e ir  co un -
t r y o f  or igin,

rel evant  info r mat ion  co ncer n ing  po ssi ble  ille g al  im por ts 
and  th e p ote ntial  r isk  of  int roduc t io n  of   dis ea s e,

infor m at io n ava il ab l e u nder  t he  R api d Ale r t s ystem,

any o th er rel evant info r mation .’ 

67.   despite its limited resources the commission's fVo has a solid 
body of exper ts and plays an impor tant role, together with na -
tional responsible entities, in maintaining the necessar y con-
t ro l   p re s s u re   o n   t h e   q u a l i t y   o f   t h e   co nt ro l   c h e c k s   p e r fo r m e d 
i n   t h e   BiPs   a l l   a c r o s s   t h e   e u.   o v e r a l l ,   a p p r o p r i a t e   s t a n d a r d s 
and detailed guidelines and procedures were adopted for the 
fVo's work planning, execution, repor ting and follow-up.  fVo  
inspec tions are per formed in an organised manner and carried 
o u t   i n   a c c o rd a n c e   w i t h   t h e   r u l e s   a d o p t e d.   howe ve r,   t h e re   i s 
ro o m   fo r   f u r t h e r   i m p rove m e n t ,   m a i n l y   a s   re g a rd s   t h e   fo r m a l 
risk analysis per formed for establishing the annual audit work 
plan and regarding the targeting of missions on the follow-up 
of  pre viou s o b ser vations.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

39

68.  

69.  

i n order to comply with the legal requirements, each year the 
inspection work of the fVo has to be planned with the suppor t 
o f   a   t ra n s p a re nt   r i s k   m o d e l.  th e   fVo  h a s   d e ve l o p e d   a   m o d e l 
in excel, the output of which is the allocation of a level of risk 
(gree n/o ra ng e /red)  to  each m ember  s tate.

40  standard operating Procedure 
PL-soP01: Planning of the sAnco 

mission Programme. Paragraph 4.4 

identification of Priorities.

th ere  is  so me  cons is tenc y  b et wee n   th e   r is k  c r ite r ia  use d  an d 
the fVo template for mission repor ts. As regards the weighting 
of  t he different c r iter ia the fVo emph asised th at th e n um ber 
of sub - criteria used for each main criterion gives more weight 
to  so me cr iter ia t han to oth ers.

70.   howeve r, it  is no t clear  why  th e c r iter i a ad opted by  th e   fVo 40 
have been chosen while trade volume and relevant information 
ob t ained from  tR A c es o r fro m R Asff h ave  n ot  been  in clude d 
e ve n   t h o u g h   t h e i r   c o n s i d e r a t i o n   i s   re q u i r e d   b y   t h e   re l e v a n t 
f V o   s t a n d a r d   o p e r a t i n g   p r o c e d u r e .   fu r t h e r m o r e ,   n e i t h e r   i s 
the weighting given to each criterion clear nor is there a clear 
rul e  for  all o cating   a  weig htin g  to  a  m ember   state  with  a  red, 
o ra n g e   o r   gre e n   l i g ht   i n   re s p e c t   o f   a   s p e c i f i c   c r i te r i o n   i n   t h e 
plann ing t ab le. 

71.  

72.  

t h e   f V o   i n s p e c t i o n   p l a n n i n g   i s   p r e s e n t e d   t o   t h e   m e m b e r 
s t a t e s   a n d   t h e y   a r e   a s k e d   t o   c o m m e n t   o n   i t .   ho w e v e r,   v e r y 
few  co mme nts  have b een received  so  far. 

t h i s   b e i n g   s o,   t h e   r i s k   m o d e l   a d o p t e d   fo r   t h e   a n n u a l   p r i o r i-
t i s a t i o n   o f   t h e   fVo  i n s p e c t i o n s   i n   m e m b e r   s t a t e s   d o e s   n o t 
integrate impor tant and legally required information facilitat-
i n g   a   q u a n t i f i e d   a n a l y s i s   t o   s u s t a i n   t h e   p r i o r i t i s a t i o n   re s u l t . 
the relative impor tance of the cr iter ia and of the sub - cr iter ia 
use d  is   ne it her  s u f f ic ie nt l y   cle ar   nor   fully  justified.  As  a  con -
sequence, the model adopted has limited value for explaining 
or for communicating the results of the analysis per formed by 
the  fVo in a t ran sp arent  m anner.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

40

73.  

the audit has also highlighted the need for fur ther for malisa -
t i o n   o f   t h e   c h o i c e s   m a d e   w h e n   p l a n n i n g   i n s p e c t i o n s   i n   t h e 
member state (e.g. BiPs selec ted, cold stores, t ype of consign -
m e n t s ,   w e a k n e s s   o f   i n t e r n a l   c o n t r o l )   a n d   o f   t h e   r o l e   p l a y e d 
b y   r i s k   a n a l y s e s   i n   t h i s   p r o c e s s   ( f a c t o r s   s u c h   a s   f i n d i n g s   i n 
t h e   l a s t   v i s i t ,   t y p e   o f   c o n s i g n m e n t s   r e c e i v e d   a n d   a n o m a l i e s 
detec ted/registered in tRA ces).  on the basis of their personal 
exper ience the fVo inspec tors tend to take these fac tors into 
account. however, there is a need for a more struc tured plan -
ning process, formally justifying the planning decisions taken, 
so as to allow effec tive ex ter nal qualit y control of the inspec -
t i o n s   a n d   t o   h e l p   t o   m i n i m i s e   t h e   d i f f i c u l t i e s   re s u l t i n g   f ro m 
sta ff t u r nover.

re p eA t e d   r e co m m e n d At i o n s   o v e r   s e v e r Al 
m i s s i o n s 

74.  

th e   a u d i t   ex a m i n e d   t h e   s u cce s s i ve   i n s p e c t i o n   re p o r t s   o f   t h e 
fV o  i s s u e d   f o r   t h r e e   o f   t h e   s e v e n   m e m b e r   s t a t e s   v i s i t e d : 
G re e c e   ( 2 0 0 7 – 0 9 ) ,   sp a i n   ( 2 0 0 2 – 0 8 )   a n d   t h e   un i t e d   K i n g d o m 
( 2 0 0 1 – 0 9 ) .  t h e   s h o r t c o m i n g s   re p o r t e d   re c u r   ve r y   f re q u e n t l y 
a n d   m a i n l y   r e l a t e   t o   f a c i l i t i e s,   e q u i p m e n t   a n d   i m p l e m e n t e d 
p r o c e d u r e s .   i n d e e d   t h e   fVo  r e p o r t s   r e p e a t e d   t h e   s a m e   r e -
mar ks frequ entl y fo r fo ur to  five  ye ar s  for  si tuat ion s th at h ad 
not  ye t  bee n red res sed.

n
o
i
s
s
i

m
m
o
C
n
a
e
p
o
r
u
E
©

FVO inspections are performed in  
an organised manner and carried out  
in accordance with the rules adopted.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

 
 
41

75.   As the fVo generally follows up its findings, there is evidence 
that   m em be r  st ate s  f reque ntly   do  n ot  effec tive ly   re med y   t he 
sho r tco ming s   detec ted  wit hin  a  re as ona ble  t im e  pe r iod. th is 
shows that, at this stage, dG sAnco does not succeed in ensur-
ing that the required correc tions are made, despite the almost 
annual frequenc y of its inspec tion visits (e.g. monitoring plan 
int rod uced l ate, no n- co mp l iant i n frast r uc t ure at ce r t ai n  BiPs, 
d e l aye d   a p p l i c at i o n   o f   fe e   rate s,   s h o r tco m i n g s   i n   t h e   s ys te m 
for ide nt ifyin g ship ments,   in comple te records  in  tR A ce s) .

co o r d i nA t i o n   An d   e v Alu At i o n   o f  t h e 
v e t e r i nAr y   c h e c k s   s ys t e m

76.  

th e   co m m i s s i o n   i s   e n t i t l e d   to   co o rd i n ate   t h e   a c t i o n s   u n d e r-
t a k e n   by   m e m b e r   st ate s   w h e n   i t   b e co m e s   awa re   o f   a c t i v i t i e s 
that  cou ld b e co nt rar y to  feed an d  food law.

co o r d i nA t i o n   o f  t h e   me m b e r   st At e 
v e t e r i nAr y   c h e c k s   s ys t e m s   n e e d s 
i m p r o v e m e n t

77.  

in accordance with title iV of Regulation (ec ) no 882/2004, the 
commission has taken several initiatives with a view to speed-
i n g   u p   t h e   h a r m o n i s a t i o n   o f   B i P   c o n t r o l s .   e x a m p l e s   i n c l u d e 
the ‘B etter training for safer food ’ training programme for BiP 
o f f i c e r s   f ro m   a   r a n g e   o f   m e m b e r   s t a t e s,   t h e   p a r t i c i p a t i o n   o f 
n at i o n a l   e x p e r t s   i n   t h e   f V o ' s   te a m s   o f   o n - t h e - s p o t   a u d i to r s, 
the issue of guidelines for the application of cer tain provisions 
of  the  hygie ne regu l ations an d oth e r  g ui de li ne s  on  impor t s.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

41  oj L 306, 23.11.2001, p. 28.

42

78.   however,  at  t he  t ime  o f  the  au dit  aroun d  4 9  commun it y  BiPs 
( o u t   o f   a ro u n d   3 0 0 )   h a d   s t i l l   n o t   b e e n   i n s p e c t e d   by   t h e   fVo  
s i n ce   b e fo re   d e c i s i o n   2 0 0 1 / 8 1 2 /e c  l ay i n g   d ow n   t h e   re q u i re -
ments for the approval of border inspec tion posts responsible 
fo r   ve t e r i n a r y   c h e c k s   o n   p ro d u c t s   i n t ro d u c e d   i n t o   t h e   co m -
m u n i t y   f r o m   t h i r d   c o u n t r i e s   w a s   a d o p t e d 4 1.   t h i s   i s   i n   s p i t e 
o f   t h e   f a c t   t h a t   f V o   i n s p e c t i o n s   a r e   a   t o o l   f a v o u r e d   b y   t h e 
c o m m i s s i o n   t o   v e r i f y   t h e   i m p l e m e n t a t i o n   o f   t h e   e u  l e g i s l a -
t i o n   e n s u r i n g   t h a t   g o o d   p ra c t i ce s   a re   i m p l e m e n te d   i n   a l l   e u 
BiPs   a n d   t h a t   n a t i o n a l   a u t h o r i t i e s   t a k e   w h a t e v e r   c o r r e c t i v e 
meas ures are neces sar y  at the a ppropr i ate  t im e.

79.  

80.  

81.  

t h e   a u d i t   a l s o   fo u n d   t h a t   s e ve r a l   k e y  ‘g u i d e l i n e s’  a re   s t i l l   i n 
preparation or being updated. these include guidelines relat-
ing to the rules implementing council direc tive 2002/99/ec of 
1 6   d e ce m b e r   2 0 0 2   l ay i n g   d ow n   t h e   a n i m a l   h e a l t h   r u l e s   g ov-
er ning the produc tion, processing, distr ibution and introduc -
tio n o f p ro duc ts o f animal  o r igin  for  h uman  con s umpti on.

t h e   a u d i t   h a s   s h o w n   t h a t   t h e   r e i n f o r c e d   c h e c k s   a r e   i m p l e -
mented  dif fere ntl y  in the var ious  m ember  s tates  (se e B ox  1) .

th e   a u d i t   h a s   a l s o   h i g h l i g h t e d   t h e   f a c t   t h a t   t h e   u p d a t i n g   o f 
t h e   f o o d   a n d   v e t e r i n a r y   l e g i s l a t i o n   i n   f o r c e   i s   a   h e a v y   b u r -
d e n   fo r   a l l   t h e   a d m i n i s t r a t i v e   a c t o r s   c o n c e r n e d .   Le g i s l a t i o n 
i s   f re q u e nt l y   u p d ate d,   a m e n d e d   a n d   s u p p l e m e nte d   ( e. g.   sPs  
agreements, approved establishments or list of approved BiPs). 
i n   o rd e r   to   b e   i n fo r m e d   i n   a n   u p - to - d ate   m a n n e r   a n d   h ave   a 
comprehensive set of applicable legislation the fVo organises 
an internal updating itself. therefore one member of the fVo’s 
BiP inspec tion team is tasked with check ing the  o fficial jour -
nal and informing the other colleagues of changes introduced. 
Acco rd i n g   to   t h e   f V o   t h i s   p ro ce d u re   i s   n e ce s s a r y   a s   t h e re   i s 
n o   o t h e r   s o u r c e   a v a i l a b l e   w h e r e   t h e   c o n s o l i d a t e d   a n d   c o m -
p re h e n s i ve   s e t   o f   l e g i s l a t i o n   c a n   b e   c o n s u l t e d.   fo r   t h e   t i m e 
b e i n g,   l e g i s l a t i ve   d o c u m e n t s   a r e   a c c e s s i b l e   t h r o u g h   t h e   d G 
sAnco we bs ite and euR -Lex. however, n one of these  source s 
p r o v i d e s   a   u s e r - f r i e n d l y   w a y   o f   e a s i l y   o b t a i n i n g   e x h a u s t i v e 
a n d   co m p l e te   i n fo r m at i o n   a s   n o   s ys te m at i c a l l y   co n s o l i d ate d 
ve rs io ns are  avail ab l e (e.g. sPs agree me nt s) .

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

 
43

82.   Although the fVo ’s impor t team already designates one mem-
ber of a team of six to this task and member states have mostly 
e s t a b l i s h e d   t h e i r   o w n   s y s t e m   o r   u s e   a n   e x i s t i n g   c o m m e rc i a l 
s y s t e m ,   w h i c h   i s   s u b j e c t   t o   a   c h a r g e,   i t   w o u l d   b e   b e n e f i c i a l 
if this  infor matio n were to b e prov id ed  ce ntrally  by  th e com-
m i s s i o n   i n   a   co n s o l i d ate d   a n d   co m p re h e n s i ve   m a n n e r.   i f   t h e 
com miss io n  were  to  s up p l y   suc h  a  tool,  th is   woul d  avoid   t he 
27 member states and the fVo and other commission ser vices 
having   to   devel op   an d  maint ain   t he ir   own   sys te m  a nd   would 
mitig ate t he r isks  of g ap s  and de lays  in  updatin g.

83.  

t h e   c o m m i s s i o n   h a s   n o t   f a c i l i t a t e d   t h e   p r e p a r a t i o n   a n d / o r 
u p d a t i n g   o f   t h e   m e m b e r   s t a t e s '   n a t i o n a l   p l a n s   (m An cPs )   i n 
r e l a t i o n   t o   i m p o r t s .   A t   t h e   t i m e   o f   t h e   a u d i t ,   a l l   t h e   m e m -
b e r   s t a t e s   h a d   a   m A n c P   a n d   h a d   s e n t   a   f i r s t   a n n u a l   r e p o r t 
to   t h e   fVo ,   w h i c h   i s   s u p p o s e d   t o   p ro d u c e   a n   a n a l ys i s   o f   t h e 
documents received (plans and annual repor ts). the three -year 
p ro g r a m m e   o f  ‘g e n e r a l ’  a u d i t s   p r o v i d e s   fo r   a u d i t e d   m e m b e r 
st ate s to  be  sent an  init ial  set  of f i n din g s.  howe ver, no  m em-
ber states visited dur ing the cour t ’s audit had received views 
o n   e i t h e r   t h e i r   mAn cPs   o r   t h e i r   f i r s t   a n n u a l   re p o r t s ;   n o r   h a d 
the y b ee n s ent  a ny w r it ten  recomm en d ati ons  concer n in g  t h e 
est ab l ishment  of an ac t ion  plan . 

im p Ac t   o f   m o r e   s t r i n g e n t   e u   s tAn d Ar d s   o n 
t h e   co m p e t i t i v e n e s s   o f   e u   p r o d u c e r s

84.  

th e   a u d i t   h i g h l i g hte d   t h at   ce r t a i n   s t a n d a rd s   ( m a i n l y   o n   a n i-
m a l   we l f a re )   i m p o s e d   o n   e u  f a r m e r s   a n d   o p e r a t o r s   i nvo l ve d 
i n   m e a t   p r o d u c t i o n   w h i c h   a r e   c o m p l e m e n t a r y   t o   t h e   i n t e r -
n a t i o n a l   s a n i t a r y   s t a n d a rd s   a c c e p t e d   b y   t h e  W to  c a n n o t   b e 
i m p o s e d   o n   p r o d u c e r s   o f   i m p o r t e d   m e a t .   A n y   l i m i t a t i o n   o n 
i m p o r t s   fo r   s a n i t a r y   re a s o n s   m u s t   b e   b a c k e d   u p   by   s c i e nt i f i c 
evide nce.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

 
44

42  com(2008) 641 final, 
15.10.2008.

43  A committee composed of 
representatives of a range of 

associations, set up by commission 

decision 2004/613/ec of 6 August 

2004 (oj L 275, 25.8.2004, p. 17).

44  council conclusions  
(section 4.2), 16.12.2008,  

17169/08 Add 1.

85.  A s   r e g a r d s   t h e   c o s t s   a n d   b e n e f i t s   o f   s u c h   s t a n d a r d s ,   t h e   i n-
for m at io n  availab l e  is   incomplete.   s ome  analyses  an d  par tial 
i n f o r m a t i o n   o n   c o s t s   ( e . g.   r e g a r d i n g   t r a c e a b i l i t y )   w e r e   p r o -
vid ed  in a 2005 /06 dG R t d st udy  on c ross- complian ce.  A ce r -
t a i n   a m o u n t   o f   i n fo r m a t i o n   —   re l a t i n g   i n   p a r t i c u l a r   t o   a g r i-
cu lt ural  m ar ket ing st andards (la be ll in g ) —  wa s a lso provi de d 
i n   t h e   2 0 0 8   G re e n   Pa p e r   o n   a gr i c u l t u ra l   p ro d u c t   q u a l i t y 4 2.   i n 
ad dit io n,   sanit ar y   measu re s  were   di sc uss e d  in   th e   dG  sAn co  
s t a n d i n g   c o m m i t t e e   o n   t h e   fo o d   ch a i n   a n d   A n i m a l   he a l t h 
(s c of c Ah), a nd rep resentat ives of t he par t ie s wh ic h be ar  t h e 
brunt of the additional costs that are incurred when legislation 
i s   a d o p t e d   ( e . g.   p r o d u c e r s   a n d   p r o c e s s o r s )   h a v e   t h e   o p p o r -
tunity to raise their concerns through consultative committees, 
i n c l u d i n g   t h e   Ad v i s o r y   G ro u p   o n   t h e   fo o d   ch a i n   a n d   An i m a l 
an d Pl ant  he al th 43.  Las tl y,  cons ultation  of profe ssion al st ake -
h o l d e r s   h a s   i m p r o v e d   i n   r e c e n t   y e a r s ,   a   v i e w   s h a r e d   b y   t h e 
organisations inter viewed representing the main chain of food 
and feed — producers, impor ters, industries and consumers —  
e v e n   i f   f e e d b a c k   f r o m   t h e   c o m m i s s i o n   s e r v i c e s   i s   s t i l l   s e e n 
as  weak . 

86.  

t h e   a u d i t   f o u n d ,   n o n e t h e l e s s ,   t h a t   t h e   c o m m i s s i o n   c a n n o t 
at   p rese nt   draw  on   a  su fficiently   compre h en s ive   an d  rel iable 
s t u d y   c o m p a r i n g   t h e   c o s t s   a n d   b e n e f i t s   o f   t h e   c o n t r o l s   i m-
p o s e d   o n   e u  f a r m e r s   a n d   o p e rato r s   w i t h   t h o s e   a p p l i c a b l e   to 
meat impor ts, especially where other public grants to eu farm -
e r s   h ave   t o   b e   t a k e n   i n t o   c o n s i d e r a t i o n .  th e   co u n c i l   i nv i t e d 
the commission 44 to present a repor t to it and the Parliament, 
b e fo re   t h e   e n d   o f   2 0 1 0 ,   o n   t h e   e f fe c t i ve n e s s   a n d   c o h e re n c e 
o f   s a n i t a r y   a n d   p hy to s a n i t a r y   i m p o r t   co n t ro l s   o n   fo o d s t u f fs. 
the   Par lia ment   has  al so   co mmiss i on ed   a  s tu dy  of  ‘ th e   cos t  of 
co m p l y i n g   w i t h   e u  l e g i s l a t i o n   i n   t h e   f i e l d   o f   e nv i ro n m e n t a l, 
animal welfare and food safet y ’, the results of which may help 
to remed y th e weak nes s es of  t he  in for m ati on  avai lable  in  t he 
com miss io n’s  ser vices in t his respe c t.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

concLusions And 
RecommendAtions

45

87.  

88.  

th e   co m m i s s i o n' s   re v i e w   a n d   a d a p t at i o n   o f   t h e   l e g a l   f ra m e -
work governing the veterinar y checks on impor ted meat initi -
a t e d   i n   2 0 0 0   b y   t h e  W h i t e   Pa p e r   a n d   f i n a l l y   d e c i d e d   i n   2 0 0 4 
with the adoption of the ‘hygiene pack age’ have been delayed 
a n d   s t i l l   h ave   to   b e   co m p l e te d   i n   s e ve r a l   i m p o r t a n t   a s p e c t s. 
i ndic ato rs  o n p re - exp or t  ch ecks  an d  for  evaluati n g th e ve te r- 
 i n a r y   a g re e m e n t s   a re   m i s s i n g   ( p a r a g r a p h s   1 7   t o   2 9 ) .   R e d u c -
t i o n s   i n   t h e   l e v e l s   o f   c h e c k s   i m p o s e d   o n   i m p o r t s   w e r e   a c -
c e p t e d   u n d e r   e q u i v a l e n c e   a g r e e m e n t s   w i t h   t h i r d   c o u n t r i e s 
w h i c h   a r e   n o t   s u f f i c i e n t l y   d o c u m e n t e d ,   a n d   d i s c r i m i n a t i o n 
a g a i n s t   t h e   ex p o r t s   o f   s o m e   m e m b e r   s t ate s   wa s   n o t   avo i d e d 
(pa ragrap hs 3 0 to 3 2) .

t h e   t w o   i n fo r m a t i o n   s y s t e m s   ( tR A c e s  a n d   R As f f)   o n   w h i c h 
the veterinar y checks on eu meat impor ts rely are widely used 
but they need improving. cer tain BiPs of some m ember states 
sti ll   do   no t  ente r  meat   imp o r t   data  i n  tR Ace s,  an d  inte r faces 
w i t h   c u s to m s   o r   o t h e r   n a t i o n a l   d a t a b a s e s   h ave   n o t   ye t   b e e n 
established. the RAsff does not ensure that the relevant aler ts 
a r e   l a u n c h e d   a n d   t h a t   p r e v e n t i v e   a c t i o n   i s   a l w a y s   t a k e n   a s 
quic k ly as  re quired t hrough out  th e e u ( para graph s  3 4  to 4 5 ) .

89.   m ainl y t hro ug h it s  f V o,  the  commiss ion cont inuous ly c ar r ies 
ou t in sp ec t io ns  in th e m em ber  s tates. howe ver, according  to 
the fVo — whose repor ts can be consulted on the correspond -
i n g   w e b s i t e   t o g e t h e r   w i t h   t h e   r e s p o n s e s   f r o m   t h e   n a t i o n a l 
aut ho r it ies — t he s hor tco ming s d ete c te d have  of ten  s ti ll n ot 
b e e n   re m e d i e d   b y   m e m b e r   s t a t e s   m o re   t h a n   t wo   ye a r s   l a t e r 
( p a ra gra p h s   4 7   to   8 3 ) .  th e   a u d i t   co n c l u d e d   t h at   t h e re   i s   s t i l l 
roo m fo r f ur t her  imp rovements. 

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90.  

i n t he  fram ewo r k  of its  su p er visor y  an d  coo rdi n ati on  compe -
tences it is recommended that the commission take appropri-
ate  ac t ion o n t he foll ow in g:

 ο

 ο

 ο

 ο

 ο

 ο

 ο

 ο

en deavo ur  to   ensu re  th at  all  m ember   states   have  t he 
sa me  r ights   to   exp or t   to  t he  th i rd  countr i es   wi th   whi ch 
ve ter inar y agreements have  bee n  con c lud ed  by  t he  e u;

fur ther  development  of  the  regulator y  framewor k  neces-
sar y for the implementation of the ‘ hygiene pack age’ and 
its presentation in a consolidated, user-fr iendly manner ;

fu r the r  de velo p ment  of  the  tR A ce s  and   R Asff  infor ma -
t ion   s ys tems  s o  th at  al l   th e  n ece ssar y   dat a  are   availabl e 
in  a  t imel y  man ner  and  aler ts  are  qui c k ly   comm un i c ated 
and   ac te d  upo n,   in   similar  ways,  in  all  t h e  par t ic ipati n g 
co unt r ies ;

de vel o pm ent   o f  g uidel in es  for  t he   nat io nal  mon i tor i n g 
and  co nt ro l pla ns im p leme nt ing a com mon e u veter inar y 
ch eck s strategy, w it h har m onis ed  fee s a n d e ffe c t ive BiPs 
ch eck ed by  a ppro p r iate  inte r na l contro ls;

de vel o pm ent   of   a  co mmon   set   of  i nd icator s  for   a s se ss-
ing   th e  impl em ent ation  of   th e ‘ hygie n e  pac k ag e’  and   it s 
ac hieveme nt  of t he cor re spon di ng  e u obje c t ives ;

fu r the r imp rove ment  of  th e t ype  an d  trans paren c y  of th e 
r isk as sessm ent  model s  used by  t he  fVo for r isk  analysis 
in t he  fra mewo r k  of  it s  audit  wor k pla n ni n g; 

ne ed  to   t ake  t he  ap p ropr iate   i n it iat ives,   i nc lu din g   le -
gis lat ive  o r  ju dicial  ac tion   if  n eces s ar y,  to   overcom e   th e 
p rese nt   situ at ion  under   whic h  re cur re nt   f in d ing s  a nd 
reco mme ndat ion s to t he m ember  states ' author it ies  fre -
qu entl y   re main  waitin g  for  co r re c ti ve   ac t ion   for   s everal 
yea rs;

har mo nisatio n  among   m ember   states   of  the  r ules   for 
l aunc hing  a sanitar y  al er t an d fo r  i mple me nt in g  th e con-
se qu ent  reinforced c heck s.

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special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

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91.  

th e   co m p e t i t i ve n e s s   o f   e u  m e a t   p ro d u c t i o n   m ay   b e   a f fe c te d 
b y   t h e   a b o v e m e n t i o n e d   a n i m a l   w e l f a r e   s t a n d a r d s   w h i c h   g o 
beyond  the  inter nationally  accepted  standards  agreed  by  the 
W to.  th e   co m m i s s i o n   s h o u l d   c a r r y   o u t   a n   a s s e s s m e n t   o f   t h e 
effec t of these specific rules on the competitiveness of eu pro -
ducers. i n this regard, the commission has been invited by the 
council to present a repor t on the veterinar y checks on impor ts 
by   t h e   e n d   o f   2 0 1 0 .   m o re ove r,   t h e   re s u l t s   o f   a   s t u d y   co m m i s -
s i o n e d   b y   t h e   e u r o p e a n   Pa r l i a m e n t   s h o u l d   a l s o   b e   a v a i l a b l e 
b y   t h e   e n d   o f   2 0 1 0   a n d   m a y   s h e d   l i g h t   o n   t h e   i m p a c t   o f   t h e 
abovementioned measures (paragraphs 84 to 86).

this report was adopted by chamber i, headed by mr michel cRetin, 
member of the court of Auditors, in Luxembourg at its meeting of 
17 n ovember 2010.

For the Court of Auditors

Vítor m anuel da si LVA c ALdeiRA
President

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

48

RePLY  of the 
commission

v i. 
th e s e   re co m m e n d at i o n s   w i l l   b e   t a k e n   i nto 
account in the commission’s ongoing wor k 
t o   e n s u r e   t h a t   i m p o r t   c o n t r o l s   r e m a i n   f i t 
for pur pose.

s eco nd  indent
th e   co m m i s s i o n   a gre e s   to   f u r t h e r   d e ve l o p 
tR A c e s  a n d   R As f f  a n d   t h e i r   u t i l i t i e s .  
i n 
fac t, th e wor k  is already  in  progres s.

third   indent
t h e   c u r r e n t   l e g i s l a t i o n   d o e s   n o t   p r o v i d e 
t h e   c o m m i s s i o n   w i t h   l e g a l   p o w e r s   t o   d o 
so. the feasibilit y of such a proposal could 
be invest ig ated. 

fo ur th  indent
staff within the fVo and  dG  sAnco ’s polic y 
d i re c to rate s   a re   re q u i re d   to   a gre e   t h e   c r i -
ter ia that are considered for setting poten -
t i a l   m i s s i o n   p r i o r i t i e s   a n d,   i n   t h e   p r i o r i t i -
s a t i o n   p r o c e s s   i t s e l f,   t o   d e m o n s t r a t e   a n d 
d o c u m e n t   t h a t   t h e s e   c r i t e r i a   h a v e   b e e n 
c o n s i s t e n t l y   a p p l i e d .   t h i s   i n   t u r n   l e a d s 
t o   m o r e   t r a n s p a r e n t   c h o i c e s   i n   t h e   e v e n t 
t h a t   c h a n g e s   h ave   to   b e   m a d e   to   t h e   p ro -
g r a m m e .  t h e   e xe r c i s e   w i l l ,   h o w e v e r,   c o n -
t i n u e   t o   b e   q u a l i t a t i v e   r a t h e r   t h a n   q u a n -
t i t a t i v e .   W h e n   a  ‘q u a n t i t a t i v e   m o d e l ’  h a s 
b e e n   d e v e l o p e d   i n   t h e   p a s t ,   i t   h a s   b e e n 
fo u n d   to   b e   ve r y   c u m b e r s o m e   a n d   h a s   n o t 
p rov i d e d   a ny   b e t te r   re s u l t   t h a n   t h e   q u a l i -
tative approach cur rently used (even when 
q u a n t i t a t i v e   d a t a ,   s u c h   a s   t r a d e   d a t a ,   a r e 
cons idered) .

executive summAry

iv. 
t h e   g e n e r a l   f o o d   l a w   a n d   t h e   ‘ h y g i e n e 
p a c k a g e ’,   i n c l u d i n g   R e g u l a t i o n   (e c ) 
no  8 8 2 / 2 0 0 4 ,   c a m e   i nto   b e i n g   i n   2 0 0 2   a n d 
2 0 0 4   r e s p e c t i v e l y.   A p p r o p r i a t e   m e a s u r e s 
we re   t a k e n   to   e n s u re   t h at   a ny   d e l ay   i n   t h e 
i m p l e m e n t a t i o n   o f   m e a s u r e s   u n d e r   t h e 
h y g i e n e   p a c k a g e   d i d   n o t   l e a d   t o   a   l o w e r 
level of hygiene p ro tec t io n.

the  frequ enc y   of   p hysical  ch eck s  h as   be e n 
r e d u c e d   f o r   t h i r d   c o u n t r i e s   u n d e r   v e t e r -
inar y agreements ( VAs), because of the reli -
a b i l i t y   o f   t h e   ce nt ra l   a u t h o r i t i e s’  p e r fo r m -
a n ce   o n   co nt ro l s   fo r   s p e c i f i c   co m m o d i t i e s 
expor ted to t he   eu. 

v. 
t h e   R As f f  a n d   tR A c e s  a r e   d e s i g n e d   t o 
e n s u re   d i s s e m i n at i o n   o f   i n fo r m at i o n   w h e n 
non- compliances are found during controls 
o n   fo o d   a n d   fe e d   o n   t h e   e u   m a r k e t .   t h e y 
also provide the capabilit y to track impor ts 
o f   g o o d s   i nto   t h e   e u   a n d   i nt ra - e u   t ra d e   i n 
l i ve   a n i m a l s.  tR A c e s  i s   a   re l a t i ve l y   re c e n t 
system  wh ich  is  stil l  under deve l o p m ent.

tR A c e s  i s   a   v e r y   a m b i t i o u s   i n i t i a t i v e   a n d 
there have been inevitable delays in member 
s t a t e s   (m ss )   a d a p t i n g   t o   i t s    r e q u i r e m e n t s 
i n   a   u n i f o r m   m a n n e r.   t h e   c o m m i s s i o n   h a s 
already taken ac tion to encourage the  m em-
ber s tates to use tR A ces  proper ly. 

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introduction

observAtions

2. 
neither of the cr ises refer red to or iginated 
from imp or ted m eat  or meat p ro d uc ts. 

t h e   g e n e r a l   f o o d   l a w   a n d   t h e   ‘ h y g i e n e 
p a c k a g e ’,   i n c l u d i n g   R e g u l a t i o n   (e c ) 
no  8 8 2 / 2 0 0 4 ,   c a m e   i nto   b e i n g   i n   2 0 0 2   a n d 
2 0 0 4   r e s p e c t i v e l y.   A p p r o p r i a t e   m e a s u r e s 
we re   t a k e n   to   e n s u re   t h at   a ny   d e l ay   i n   t h e 
i m p l e m e n t a t i o n   o f   m e a s u r e s   u n d e r   t h e 
‘ hyg i e n e   p a c k a g e’  d i d   n o t   l e a d   t o   a   l o we r 
level of hygiene p ro tec t io n.

5. 
Le g a l   i m p o r t s   o f   m e a t   a n d   m e a t   p ro d u c t s 
( o r   e ve n   o f   fo o d   o f   a n i m a l   o r i g i n )   a re   n o t 
a   s i g n i f i c a n t   s o u rc e   o f   o u t b re a k s   o f   t h e s e 
diseases.

9. 
t h e   e q u i v a l e n c e   d e t e r m i n a t i o n   i n   v e t e r -
inar y agreements addresses legislation and 
s t a n d a r d s   a n d   d o e s   n o t   i n c l u d e   p e r f o r m -
ance of the control system unless specified 
ot her wise.

Audit scope And ApproAch

12. 
t h e   l e g a l   b a s i s   f o r   v e t e r i n a r y   c h e c k s   o n 
m e a t   i m p o r t s   r e m a i n s   c o u n c i l   di r e c t i v e 
9 7 / 7 8 /e c,   w h i c h   i s   s t i l l   i n   fo rce   ( a s   a re   t h e 
decisions impl em entin g it). 

1 7. 
t h e   c o m m i s s i o n   h a s   a l r e a d y   s t a r t e d   t h e 
e x e r c i s e   o f   s i m p l i f y i n g   t h e   i m p o r t   l e g -
i s l a t i o n   a n d   a l s o   p l a n s   a   r e v i e w   o f   s u c h 
l e g i s l a t i o n ,   w h i c h   w i l l   i n c l u d e   t h e   p o s s i -
b i l i t y   o f   m o r e   u s e r - f r i e n d l y   a n d   u n i f o r m 
regula tor y re quirem ents. i n  the  meantime,  
a l l   re l e v a n t   i n fo r m a t i o n ,   i . e.   i m p o r t   g u a r -
a nte e s,   ce r t i f i c ate s   a n d   l i s t s   o f   a u t h o r i s e d 
t h i r d   c o u n t r i e s   a n d   a p p r o v e d   e s t a b l i s h -
m e n t s ,   i s   a v a i l a b l e   i n   t h e   tR A c e s  s y s t e m 
s o   t h a t   m e m b e r   s t a t e   c o n t r o l l e r s   a t   BiPs 
k now  wh ic h  ch ec ks  h ave  to  be  c ar r ie d  out. 
e c o n o m i c   o p e r a t o r s   a l s o   h a v e   a c c e s s   t o 
t h e   s y s t e m ,   i . e .   t o   c e r t i f i c a t e s ,   t h e   l i s t   o f 
a p p ro ve d   e s t a b l i s h m e n t s   a n d   t h e   l e g i s l a -
tion on the specific requirements.  consoli -
d a te d   ve r s i o n s   o f   e u   l e gi s l a t i o n   a re   av a i l -
a b l e   f r o m   t h e   c eLeX   d a t a b a s e ,   w h i c h   i s 
access ible to th e  general public. 

A   g u i d e   o n   r e i n f o r c e d   c h e c k s   i s   b e i n g 
draf ted, including use of tR A ces to ensure 
g e n e r a l   a p p l i c a t i o n   a n d   h a r m o n i s a t i o n 
o f   t h e   r e i n f o r c e d   c h e c k s   t h r o u g h o u t   t h e 
m ember  states. 

b ox 1   — l egislatio n o n rei nforced 
c hecks  unc lear
s ee res pon se to  th e obser vatio n  above.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

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2 4. 
th e   d e l ays   we re   k e p t   to   t h e   m i n i m u m   a n d 
h a d   n o   i m p l i c a t i o n s   i n   t e r m s   o f   r i s k s   t o 
human health in connec tion with impor ted 
m e at   a n d   m e at   p ro d u c t s   a n d   t h e re   wa s   n o 
legal vacuum bet ween the entr y into force 
o f   t h e   ‘ h y g i e n e   p a c k a g e ’  a n d   o f   c e r t a i n 
provision s implementing  it.

the measures which took effec t af ter eight 
m o n t h s   w e r e   t h e   r e s u l t   o f   t h e   o n g o i n g 
i m p l e m e nt at i o n   o f   t h e   a gre e m e nt   a n d   t h e 
u p d a t e   o f   t h e   r e f e r e n c e s   t o   l e g i s l a t i o n . 
th e   re d u ce d   c h e c k s   we re   t h e   re s u l t   o f   t h e 
o r i gi n a l   n e g o t i at i o n s   o n   t h e   a gre e m e nt   i n 
1996/97 and are not related to the ‘hygiene 
pack a ge’. 

2 5. 
P r e - e x p o r t   c h e c k s   a r e   n o t   c o m p u l s o r y   i n 
th e  e u  legislat ion  on  meat  and  me at  pro d -
uc t impor ts, as there are four levels of con -
t r o l .  t h e s e   a r e :   t h e   a p p r o v a l   o f   t h e   c o u n -
t r y,   l i s t i n g   o f   t h e   c o u n t r y   f o r   t h e   r e s i d u e 
m o n i to r i n g   p l a n ,   l i s t i n g   o f   e s t a b l i s h m e nt s 
and a harmonised health cer tificate setting 
animal and public health conditions. these 
l e v e l s   r e l y   o n   t h e   t h i r d   c o u n t r y   c A s’  c o n -
t ro l   s y s t e m   fo r   t h e   c o m m o d i t i e s   e x p o r t e d 
to t he  e u .

fVo  i n s p e c t i o n s   a l w a y s   i n c l u d e   v e r i f i c a -
t i o n   o f   t h e   c a p a c i t y   o f   t h e   t h i rd   c o u n t r y ’s 
c o n t r o l   s y s t e m   t o   u s e   o n l y   e u- a u t h o r i s e d 
s o u r c e s   o f   m e a t   a n d   m e a t   p r o d u c t s .   t h i s 
in cludes t heir  impor t requirements. 

18. 
the commission has always been careful to 
e n s u re   t h at   a ny   d e l ays   i n   m a k i n g   c h a n g e s 
t o   i m p o r t   r e q u i r e m e n t s   t o   r e f l e c t   c o r -
responding changes to requirements in the 
eu itself are kept to the minimum. Pending 
s u c h   c h a n g e s ,   t h e   e x i s t i n g   r e q u i r e m e n t s , 
w h i c h   m a y   b e   s t r i c t e r,   r e m a i n   i n   p l a c e . 
di re c t i ve   2 0 0 4 / 4 1 /e c  o f   t h e   eu ro p e a n   Pa r-
liament and of the council of 21 Apr il 2004 
wa s adop ted, inter  al ia,  fo r this  p ur pose. 

19. 
th e s e   d e l ays   h a d   n o   i m p l i c at i o n s   i n   te r m s 
o f   r i s k s   t o   h e a l t h   i n   c o n n e c t i o n   w i t h 
impor ted me at  an d meat p rod uc t s.

20. 
th e   co m m i s s i o n   a c te d   o n   t h i s   re s e r vat i o n 
b y   m a k i n g   s u r e   t h a t   t h e r e   w a s   n o   l e g a l 
v a c u u m   b e t w e e n   t h e   e n t r y   i n t o   f o r c e   o f 
t h e   hygi e n e   p a c k a g e   a n d   o f   ce r t a i n   p rov i -
sions  impl ementing  it. 

21. 
B a s e d   o n   t h e   p r i o r i t i e s   s e t   fo r   i t s   m i s s i o n 
p r o g r a m m e ,   t h e   fVo  c a r r i e s   o u t   r e g u l a r 
i n s p e c t i o n s   i n   t h i r d   c o u n t r i e s   e x p o r t i n g 
s i g n i f i c a n t   q u a n t i t i e s   o f   m e a t   a n d   m e a t 
produc ts  to t he eu. 

R e g u l at i o n   (e c )   no   8 8 2 / 2 0 0 4   o n l y   re q u i re s 
t h i rd   co u nt r i e s   to   p rov i d e   t h e   co m m i s s i o n 
w i t h   i n f o r m a t i o n   o n   t h e i r   c o n t r o l   s y s t e m 
f o r   e a c h   t y p e   o f   p r o d u c t   i n t e n d e d   t o   b e 
e x p o r t e d   t o   t h e   e u .   c o n s e q u e n t l y,   s u c h 
guidelines on the general organisation and 
per for mance of checks car r ied out by third 
co u nt r y   c As   a re   n o t   n e ce s s a r y   o r   re q u i re d 
under eu l egislation.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

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o r i g i n a l l y,   f o r   t h e   v e t e r i n a r y   a g r e e m e n t s 
t h e   m e t h o d   f o r   e s t a b l i s h i n g   e q u i v a l e n c e 
r e c o m m e n d e d   b y   t h e   co d e x   A l i m e n t a r i u s 
b a s e d   o n   c o m p a r i s o n   o f   l e g i s l a t i o n   w a s 
used.

t h e   fVo  i s   n o t   r e s p o n s i b l e   f o r   e v a l u a t -
i n g   e q u i v a l e n c e   b u t   fo r   ve r i f y i n g   t h a t   t h e 
standards laid down in the agreements are 
proper ly  applied. 

b ox 2   — m ain d ifficu lties  for  reviewin g 
t he sps  agreement s
A s   e x p l a i n e d   i n   t h e   r e p l y   t o   o b s e r v a -
tion 24, the reduced checks were the result 
o f   t h e   o r i gi n a l   n e g o t i a t i o n s   o n   t h e   a gre e -
ment in 1996/97 and are not related to the 
‘ h y g i e n e   p a c k a g e’.   to d a y,   e x p e r i e n c e   h a s 
p r o v e d   t h a t   n e w   Ze a l a n d   i s   t h e   b e s t   p e r -
for mer  at  m eetin g eu impor t cond i ti on s.

b ox 3   — the p hysic al  chec k  rates are 
minima. m emb er s t ates may d o  mo re. 
i mpor t   ch ec ks  are  confor mit y  cont ro ls  a nd 
n o t   i n   t h e m s e l v e s   s u f f i c i e n t   t o   e s t a b l i s h 
a p p l i c a b l e   i m p o r t   co n d i t i o n s.   fu r t h e r   p ro -
p o s a l s   f o r   h a r m o n i s i n g   s o m e   p r o c e d u r e s 
a n d   i n c r e a s i n g   u s e   o f  tR A c e s  b y   m e m b e r 
s t a t e s   a r e   c u r r e n t l y   u n d e r   w a y.   fu r t h e r -
m o re,   t h e   l e gi s l at i o n   o n   i m p o r t   co nt ro l s   i s 
a l r e a d y   u n d e r   r e v i e w   a n d   r e v i s i o n   i s   v e r y 
p o s s i b l e .   fo o t n o t e   1 6   r e f e r s   t o   r i s k   f a c -
t o r s   w h i c h   a r e   n o t   n e c e s s a r i l y   k n o w n   a t 
t h e   BiP,   fo r   e x a m p l e,   t h e   t a rg e t   c o n s u m e r 
g r o u p,   t h e   e x t e n t   a n d   n a t u r e   o f   a n y   f u r -
t h e r   p r o c e s s i n g ,   t h e   e x p o r t i n g   c o u n t r y ’s 
i n s p e c t i o n   a r r a n g e m e n t s   o r   t h e   c o m p l i -
a n c e   r e c o r d   o f   t h e   t h i r d   c o u n t r y   p r o d u c -
er s.

26. 
th e re   i s   a   g e n e ra l   co n s e n s u s   t h a t   t h e   a n i-
mal health and hygiene s tatu s in  new Zea -
l a n d   i s   a m o n g   t h e   ve r y   b e s t   i n   t h e   wo r l d. 
no n e t h e l e s s ,   t h e   n e x t   a m e n d m e n t   t o   t h e 
v e t e r i n a r y   a g r e e m e n t   w i t h   ne w   Z e a l a n d 
w i l l   c l a r i f y   ( i n   An n ex  Vi i i)   t h at   1 0 0   %   i d e n -
t i t y   c h e c k s   a r e   r e q u i r e d   f o r   i m p o r t s   f r o m 
new Zealand. 

27. 
t h e   p r o c e s s   f o r   d e t e r m i n i n g   e q u i v a l e n c e 
i n   i n t e r n a t i o n a l   o r g a n i s a t i o n s   ( W to  a n d 
codex Alimentar ius) is not based on use of 
indic ators. 

the ALoP for the  eu did not change before 
o r   a f t e r   t h e   ‘ h y g i e n e   p a c k a g e ’.   f i r s t ,   i t 
i s   s e t   a t   p o l i t i c a l   l e v e l ,   t h e n   t h e   r e s u l t -
a n t   m e a s u r e s   a r e   e s t a b l i s h e d   i n   o r d e r   t o 
a c h i e v e   t h e   A LoP   a n d   n o t   t h e   o t h e r   w a y 
a ro u n d,   w h i c h   wo u l d   m e a n   t h a t   t h e   A LoP 
i s   t h e   r e s u l t   o f   t h e   m e a s u r e s .   d e t e r m i n a -
tion of equivalence is based on assessment 
of the measures and the standards without 
t a k i n g   i n t o   a c c o u n t   c o n t r o l   s y s t e m   p e r -
for man ce. 

28. 
this exercise was solely for infor mation for 
b o t h   s i d e s.   i t   c o n c l u d e d   t h a t   e q u i v a l e n c e 
was not affec ted by the new  eu legislation. 
co n s e q u e n t l y,   a l l   t h a t   n e e d e d   t o   b e   d o n e 
wa s   to   a m e n d   t h e   a n n exe s   w i t h   re fe re n ce s 
to th e ne w re gu l ation. 

29. 
A s   s t a t e d   i n   t h e   r e p l y   t o   o b s e r v a t i o n   2 7 , 
n o   re v i s i o n   a s   s u c h   w a s   n e c e s s a r y   fo r   t h e 
veter inar y agreements and the var ious lev -
e l s   o f   e q u i va l e n ce   a c h i e ve d.  th e re fo re,  ‘n o 
c o m m o n   p r o c e d u r e   fo r   r e v i s i o n   b a s e d   o n 
e s t a b l i s h e d   q u a n t i t a t i v e   a n d   q u a l i t a t i v e 
indic ators’ was n ecessar y.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

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RePLY  of the 
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3 4. 
m e m b e r   s t a t e s ’  a c c e p t a n c e   o f   tR A c e s  i s 
c o n t i n u i n g   t o   i n c r e a s e   a n d   i m p r o v e .   t h e 
l e g a l   o b l i g a t i o n   t o   u s e   tR A c e s  (d e c i s i o n 
2 0 0 4 / 9 2 /e c )   d o e s   n o t   p r e c l u d e   u s e   o f 
n ation al  sof t ware.

t h e re   w a s   a   p ro b l e m   w i t h   c o nv i n c i n g   t h e 
t h re e   m e m b e r   st ate   n a m e d   to   u s e  tR A c e s. 
ho w e v e r,   i m p l e m e n t a t i o n   o f   tR A c e s  i n 
e v e r y   m e m b e r   s t a t e s   i s   n o w   n e a r l y   c o m -
plete.

i m p r o v e m e n t   o f   t h e   tR A c e s  s y s t e m   i s 
in deed an  ongoin g process.

t h e   c o m m i s s i o n   i s   s e e k i n g   t o   a d d r e s s 
t h e   i s s u e   r a i s e d   b y   t h e   c o u r t   i n   o r d e r   t o 
c o n s i d e r   h o w   t o   u s e   s u c h   d a t a   f o r   d e v e l -
o p m e n t   o f   a   r i s k - b a s e d   a p p r o a c h   t o   v e t -
e r i n a r y   c h e c k s   i n   BiPs’  re l e va nt   m o d e l   ce r -
tificates.

3 5. 
co m p a r i n g   s t a t i s t i c a l   d a t a   s e r v i n g   d i f fe r -
e n t   a i m s   i s   c u r r e n t l y   n e i t h e r   r e l e v a n t   n o r 
p ra c t i c a b l e.   R e co n c i l i at i o n   o f   s u c h   d at a   i s 
t h e re fo re   n o t   ye t   o p e rat i o n a l.   di s c u s s i o n s 
a re   o n g o i n g   b e t we e n   t h e   re l e va nt   d e p a r t -
ments. 

tR A c e s  co nt a i n s   d at a   o n   a l l   co n s i gn m e nt s 
c h e c k e d   a n d   r e l e a s e d   o r   r e f u s e d   o r   f o r 
t r a n s i t   t o   t h i r d   c o u n t r i e s   a t   t h e   b o r d e r, 
w h e r e a s   t h e   c u s t o m s   a u t h o r i t i e s   u s e   t w o 
d i f f e r e n t   s y s t e m s ,   o n e   f o r   c o n s i g n m e n t s 
re l e a s e d   fo r   f re e   u s e   i n   t h e   e u  a t   t h e   b o r -
d e r   a n d   o n e   f o r   c o n s i g n m e n t s   r e l e a s e d  
fo r   f re e   u s e   i n   t h e   e u  a t   t h e i r   d e s t i n a t i o n 
in  a m ember  s tate. 

i n   l i n e   w i t h   t h e   p r i n c i p l e   o f   s u b s i d i a r i t y, 
r e s p o n s i b i l i t y   fo r   t h e   c o n s i g n m e n t   s e l e c -
t i o n   m e t h o d   l i e s   p r i m a r i l y   w i t h   t h e   m e m -
b e r   s t a t e s,   w h i c h   a re   b e s t   p l a c e d   t o   e xe r -
cise this role. the commission nonetheless, 
b o t h   t h ro u g h   f V o   i n s p e c t i o n   re p o r t s   a n d 
i n   i t s   c o o r d i n a t i o n   w o r k   w i t h   m e m b e r 
st ate s,   p ro m o te s   b e s t   p ra c t i ce s   a n d   co o p -
eration  in identifying r isk s.

31. 
the results of laborator y analysis are one of 
a   w i d e   ra n g e   o f   f a c to r s   t a k e n   i nto   a cco u nt 
i n   r i s k   a s s e s s m e nt.   dG   sAn co  i s   co n s i d e r -
i n g   a   m o r e   t a r g e t e d   r i s k - b a s e d   s y s t e m   o f 
p h y s i c a l   c o n t r o l s   a n d   w i l l   b e   u s i n g   s u c h 
d a t a   t o   i n f o r m   m e m b e r   s t a t e s   o f   t h e   f r e -
q u e n c y   o f   p hy s i c a l   c h e c k s   n e e d e d ,   w h i c h 
t h i rd   co u nt r i e s / e s t a b l i s h m e nt s   n e e d   to   b e 
more closely monitored and which analytes 
to ta rget in imp o r ted fo o ds tu ffs. 

ho r m o n e s   a r e   n a t u r a l l y   p r o d u c e d   a t   l o w 
l e ve l s   i n   a n i m a l s   a n d   t h e s e   re s u l t s   gi ve   n o 
re a s o n   to   s u s p e c t   a b u s e   o r   m i s u s e   o f   h o r-
mones as growt h fac tor s. 

32. 
Pro gre s s   co nt i n u e s   to   b e   m a d e   o n   i n c re a s -
i n g   t h e   n u m b e r   o f   m e m b e r   s t a t e s   r e c o g -
nised as  f ul ly  e quivalent. 

R e g a r d i n g   t h e   u sA ,   n o   f u l l   e q u i v a l e n c e 
status exists in either direc tion (except for 
f i s h e r y   p r o d u c t s   i m p o r t e d   i n t o   t h e   e u ) . 
c o n s e q u e n t l y,   u s  f e d e r a l   l e g i s l a t i o n   a n d 
e u  l e gi s l at i o n   a p p l y   to   t ra d e.   fo r   a l l   m e m -
ber state s the  im po r t l egis lat ion  is  h ar m o -
nised, so they should accept what is stated 
i n   t h e   VA .   i n   p r a c t i c e ,   f o r   m e a t   a n d   m e a t 
p r o d u c t s   t h e   g e n e r a l   i m p o r t   g u a r a n t e e s 
a n d   r e l e v a n t   c e r t i f i c a t e s   a p p l y,   a s   f o r   a l l 
ot her t hird co unt r ies. 

s ee above.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

5353

RePLY  of the 
commission

4 1. 
As  t he  aims  of  th is  data  differ,  t he ir   recon -
c i l i a t i o n   i s   t h e r e fo r e   n o t   y e t   o p e r a t i o n a l . 
c o n t i n u o u s   c o o p e r a t i o n   e x i s t s   b e t w e e n 
dG   sAn c o  a n d   dG   tA Xu d  a n d   a   s p e c i f i c 
p r o j e c t   g r o u p   h a s   b e e n   s e t   u p   t o   d e f i n e 
t h e   l i n k s   b e t w e e n   t h e   c u s t o m s   d a t a b a s e s 
an d tR A ce s.

t h e   o b l i g a t i o n   t o   i n c l u d e   t h e   1 0 - d i g i t 
tA Ri c  c o d e   o n   t h e   s u m m a r y   d e c l a r a t i o n 
w a s   r a i s e d   s e ve r a l   t i m e s.   ho we ve r,   s t a k e -
h o l d e r s   i n   t h e   dG   tAXu d  w o r k i n g   g r o u p s 
refuse d to inc lude the code.

4 2. 
tR A c e s  co nt a i n s   d at a   o n   a l l   co n s i gn m e nt s 
c h e c k e d   a n d   r e l e a s e d   o r   r e f u s e d   o r   f o r 
t r a n s i t   t o   t h i r d   c o u n t r i e s   a t   t h e   b o r d e r, 
w h e r e a s   t h e   c u s t o m s   a u t h o r i t i e s   u s e   t w o 
d i f f e r e n t   s y s t e m s ,   o n e   f o r   c o n s i g n m e n t s 
re l e a s e d   fo r   f re e   u s e   i n   t h e   e u  a t   t h e   b o r -
d e r   a n d   o n e   f o r   c o n s i g n m e n t s   r e l e a s e d  
fo r   f re e   u s e   i n   t h e   e u  a t   t h e i r   d e s t i n a t i o n 
in  a m ember  s tate.

4 4. 
i n c l u s i o n   o f   t h e   l i s t   o f   p r o d u c t s   i n   t h e 
A n n e x   t o   d e c i s i o n   2 0 0 7 / 2 7 5 /e c  i n   t h e 
tA Ri c  l i s t   a n d   i n   t h e   n c t s  h a s   b e e n   d i s -
c u s s e d   s e v e r a l   t i m e s .   ho w e v e r ,   t h i s 
requires the agreement of customs author-
ities, which has not been for thcoming. dis -
cussions will continue in the contex t of the 
review of impor t cont rol legis lati on .

4 5. 
t h i s   i s   t h e   r e s p o n s i b i l i t y   o f   t h e   m e m b e r 
s t a t e s ,   b u t   t h e   c o m m i s s i o n   a c t i v e l y   p r o -
motes a common approach .

36. 
th e   re l e v a n t   dG   sAn co  s t a f f   a re   aw a re   o f 
several of these points and are wor k ing on 
t h e m .  t h e   co u r t ’s   v i e w s   w i l l   b e   h e l p f u l   i n 
th is  wor k . 

37. 
e f sA   w a s   p r o v i d e d   w i t h   t h e   d a t a   w h e n   i t 
requested  infor matio n fo r its  as s e s s m ent. 

38. 
A r t i c l e   5 0   o f   R e g u l a t i o n   ( e c )   n o   1 7 8 / 2 0 0 2 
l a i d   d ow n   t h e   g e n e ra l   co n d i t i o n s   fo r   n o t i-
f y i n g   i n f o r m a t i o n   t o   t h e   R As f f .   m o r e 
d e t a i l e d   a p p l i c a t i o n   m e a s u r e s   d r a w n 
f r o m   e x p e r i e n c e   ( s e e   f o o t n o t e   2 3   o f   t h i s 
r e p o r t )   a s   s t i p u l a t e d   i n   A r t i c l e   5 1   s h o u l d 
be adopted in 2011.

39. 
the commission welcomes the widespread 
s a t i s f a c t i o n   e x p r e s s e d   b y   t h e   m e m b e r 
states.

i n   l i n e   w i t h   t h e   p r i n c i p l e   o f   s u b s i d i a r i t y, 
m e m b e r   s t a t e s   h ave   d i s c re t i o n   o n   h o w   t o 
reac t, but the commission is ac tively wor k-
ing to prom ote a co mmon ap p ro ac h .

40. 
s ee respons e to  o b ser vation 38 .

the r isk posed to public health from expo -
s u r e   t o   t h i s   m e a t   i n   t h i s   c a s e   w a s   c o n -
sidered n egl igib le.

the  comm iss ion  con siders   t hat  th e  s ystem 
reac ted propor tionately and in timely fash-
ion  —  see  ab ove. 

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

54

RePLY  of the 
commission

5 2. 
the sur veillance strategies are the respon-
sibilit y  of t he m ember  s tates.

5 3. 

t h e   e u  l e g i s l a t i o n   s t i p u l a t e s   t h a t   a l l   c o n -
s i gn m e nt s   o f   i m p o r te d   fo o d   o f   a n i m a l   o r i -
gi n   m u s t   b e   co nt ro l l e d   at   BiPs.   th e s e   co n -
signments and possible fur ther controls on 
t h e m   a r e   t r a c k e d   o n   t h e   b a s i s   o f   R e g u l a -
tion  (e c )  no 88 2 /2 00 4.

5 5. 
t h e   p e r s o n   re s p o n s i b l e   fo r   t h e   l o a d   s i g n s 
t h e   c Ve d ,   c o m m i t t i n g   h i m s e l f   t o   p a y   a n y 
fe e s   d u e   a n d   s t a t i n g   t h e   o r i gi n   a n d   d e l i v -
e r y   a d d re s s   o f   t h e   g o o d s.  th i s   g u a r a n te e s 
full traceabilit y. 

R e g a r d i n g   c o n d i t i o n s   o f   s t o r a g e ,   t h e s e 
c o n s i g n m e n t s   a r e   s u b j e c t   t o   t h e   n o r m a l 
r u l e s   o n   p o s t- B i P   re l e a s e   o f   i nt ra - co m m u -
n it y  goods.

5 7. 
t h e   h a r m o n i s a t i o n   o f   c o n t r o l   f e e s   i s   a 
c o m p l e x   a n d   c o n t r o v e r s i a l   i s s u e   w h e r e 
p r o g r e s s   h a s   p r o v e d   d i f f i c u l t   d e s p i t e   t h e 
commission’s best effor ts.  once legislation 
h a s   b e e n   fo r m u l a te d   i n   co o rd i n a t i o n   w i t h 
t h e   eu ro p e a n   Pa r l i a m e n t   a n d   t h e   co u n c i l, 
i t   i s   f u l l y   a p p l i c a b l e   i n   t h e   m e m b e r   st ate s. 
t h e   co m m i s s i o n ,   a s   g u a rd i a n   o f   t h e  tre a -
t i e s ,   i s   d u t y   b o u n d   t o   e n s u r e   t h a t   i t   i s 
impleme nted as it stan ds.

5 8. 
th e   co m m i s s i o n   i s   re q u i re d   o n l y   to   ex a m -
i n e   w h e t h e r   t h e   f e e s   c o m p l y   w i t h   t h e 
r e q u i r e m e n t s   o f   A r t i c l e   2 7   o f   R e g u l a t i o n 
( e c )  n o 88 2 /2 0 04. 

47. 
R e g u l a t i o n   (e c )   no   1 3 6 / 2 0 0 4   i m p o s e s   n o 
l e g a l   r e q u i r e m e n t   f o r   t h e   c o m m i s s i o n   t o 
draf t  such g uide lines. 

i n   a d d i t i o n   t o   v e r i f y i n g   t h e   e x i s t e n c e 
a n d   a p p l i c a t i o n   o f   t h e   m o n i t o r i n g   p l a n s 
r e q u i r e d   b y   R e g u l a t i o n   (e c )   no   1 3 6 / 2 0 0 4 , 
the fVo assesses the appropriateness of the 
plans (see the reply to obser vation 49). 

48. 
t h e   r e l e v a n c e   o f   t h e s e   f i n d i n g s   i s   v e r y 
l i m i t e d   i n   te r m s   o f   ex p o s u re   o f   co n s u m e r s 
to r isks to human health and, especially, to 
chemical contaminants. m oreover, for food 
o f   a n i m a l   o r i g i n ,   i n c l u d i n g   a q u a c u l t u r e 
p r o d u c t s ,   a u t h o r i s e d   t h i r d   c o u n t r i e s   a r e 
l i s t e d   o n   t h e   b a s i s   o f   a   r e s i d u e   a n d   e n v i -
ron menta l co nt aminants m onito r i ng  pl an.

t h e   c o m m i s s i o n   h a s   n o   p o w e r s   o v e r   t h e 
b u d g e t   a l l o c a t e d   b y   m e m b e r   s t a t e s   g o v -
er nments to  c As’ co nt ro l p l ans.

49. 
t h e   l e g i s l a t i o n   i n   r e l a t i o n   t o   s u c h   m o n i -
to r i n g   p l a n s   i s   n o t   p re s c r i p t i ve   a n d   i t   i s   to 
b e   e x p e c t e d   t h a t   t h e   m o n i t o r i n g   p l a n   fo r 
e a c h   m e m b e r   st ate s   i s   t a i l o re d   to   n at i o n a l 
n e e d s .   W h e r e   t h e r e   a r e   s h o r t c o m i n g s   i n 
t h e   d e s i gn   o f   t h e   p l a n ,   t h e   f V o   h i g h l i g ht s 
th is. 

A n y   r e m e d i a l   a c t i o n   w o u l d   n e e d   t o   t a k e 
account  of t he su b sidiar it y p r inc i p l e.

51. 
t h i s   w a s   i n t e n d e d   b y   t h e   l e g i s l a t i v e 
a u t h o r i t i e s   t o   e n s u r e   f l e x i b i l i t y   a n d   s u b -
sidiar it y to wor k . since there is no detailed 
l e g a l   r e q u i r e m e n t ,   s u c h   v a r i a t i o n s   a r e   t o 
b e   e x p e c te d   a n d   t h u s   a re   n o t   a n   i n f r i n g e -
ment  again st eu legisl atio n. 

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

t h e   c o m m i s s i o n   h a s   a l r e a d y   a n n o u n c e d 
t h a t   i t   i n t e n d s   t o   r e v i s e   t h e   c u r r e n t   c o n -
t r o l   f e e   s t r u c t u r e .   t h e   r e l a t e d   i m p a c t 
a s s e s s m e n t   i s   c u r re n t l y   b e i n g   c o n d u c t e d. 
i f   a p p r o p r i a t e ,   a   c o m m i s s i o n   p r o p o s a l   t o 
a m e n d   t h e   r u l e s   o n   t h e   f i n a n c i n g   o f   o f f i-
c i a l   c o n t r o l s   w i l l   b e   p r e s e n t e d   i n   2 0 1 2 
( t o g e t h e r   w i t h   t h e   o t h e r   p l a n n e d   re v i e w s 
involving  R eg ul atio n (ec ) no  882/200 4).

59. 
t h e   a i m   o f   h a r m o n i s a t i o n   i s   n o t   i n c l u d e d 
i n   t h e   l e g a l   b a s i s   (Ar t i c l e   5 5   o f   R e g u l at i o n 
(e c )   no   8 8 2 / 2 0 0 4 ) .   i n   a d d i t i o n ,   i n   te r m s   o f 
sanc tions, the subsidiar it y pr inciple is par-
ticular ly rel evant.

d u r i n g   i t s   a u d i t s,   t h e   fVo  ve r i f i e s   c o r re c t 
implem entatio n of Ar t icl e 55.

A s   h a r m o n i s a t i o n   o f   p e n a l t i e s   i s   n o t 
i n c l u d e d   i n   t h e   l e g a l   b a s i s   ( A r t i c l e   5 5   o f 
R e g u l at i o n   (e c )   no   8 8 2 / 2 0 0 4 ) ,   fo r m u l at i o n 
o f   g u i d e l i n e s   o r   g o o d   p r a c t i c e s   i s   n o t   a n 
issue.

60. 
this is a power reser ved for m ember states 
u n d e r   e u  l a w.   i f   a   m e m b e r   s t a t e   r e q u e s t s 
a p p r o v a l   o f   a   BiP,   a l l   t h e   c o m m i s s i o n   c a n 
d o   i s   t o   a s c e r t a i n   w h e t h e r   t h e   f a c i l i t i e s , 
e q u i p m e n t   a n d   s t a f f   i n   p l a ce   co m p l y   w i t h 
e u  l e g i s l a t i o n .   i t   h a s   n o   p owe r s   t o   d e c i d e 
on  its u tilit y  o r o ther w is e.

5555

RePLY  of the 
commission

6 2. 
similar findings have been repor ted by the 
fVo .   R e g u l a t i o n   (e c )   no   8 8 2 / 2 0 0 4   i n t r o -
d u c e d   t h e   r e q u i r e m e n t   f o r   a n   i n t e r n a l 
a u d i t   ( o r   t o   h a v e   e x t e r n a l   a u d i t s   c a r r i e d 
o u t ) .   G i v e n   t h e   c o m p l e x i t y   o f   s u c h   a u d i t 
s ys te m s   a n d   t h e   n e e d   to   a d d re s s   i s s u e s   o f 
a   h i g h e r   p r i o r i t y,   i t   i s   u n d e r s t a n d a b l e   t h at 
t h e y   h a v e   n o t   y e t   b e e n   f u l l y   d e v e l o p e d 
a n d   t h a t   m e m b e r   s t a t e s   a r e   a t   d i f f e r e n t 
s t a g e s   o f   d e ve l o p m e n t .   howe ve r,   t h e   fVo  
h a s   b e e n   e va l u at i n g   m e m b e r   s t ate s’  a u d i t 
s y s t e m s   i n   t h e   s e r i e s   o f   g e n e r a l   a u d i t s   o f 
m e m b e r   s t a t e s’  c o n t r o l   s y s t e m s .   t h e   f i r s t 
r o u n d   o f   t h i s   s e r i e s   w i l l   b e   c o m p l e t e d 
i n   2 0 1 0 .   t h e   fVo  h a s   a l r e a d y   p r o d u c e d 
n u m e r o u s   f i n d i n g s ,   c o n c l u s i o n s   a n d   r e c -
o m m e n d a t i o n s   r e g a r d i n g   a u d i t   s y s t e m s . 
s t r u c t u re d   fo l l o w - u p   o f   t h e s e   re c o m m e n -
dat ions is already  in  place.

th e s e   a re   t h e   l e g a l   p rov i s i o n s   a d o p te d   by 
t h e   eu ro p e a n   Pa r l i a m e n t   a n d   t h e   co u n c i l, 
w h i c h   d e c i d e d   t h a t   s u c h   m e a s u re s   s h o u l d 
n o t   b e   b i n d i n g .   ho w e v e r   t h e y   a r e   t a k e n 
i n t o   a c c o u n t   b y   t h e   fVo  i n   i t s   i n s p e c t i o n 
ac tiv ities.

6 3. 
s e e   t h e   r e p l y   t o   o b s e r v a t i o n   6 2 .   i n t e r n a l 
c o n t r o l   f u n c t i o n s   a r e   i n   p l a c e   i n   s o m e 
m e m b e r   s t a t e s   a n d   t h e   n u m b e r   s h o u l d 
in creas e ove r time.

(c ) 
d u e   t o   t h e   v a r i o u s   c o m m o d i t i e s   a n d   a n i -
m a l s / a n i m a l   p r o d u c t s   i m p o r t e d   v i a   BiPs , 
i n s p e c t o r s   c a n n o t   b e   s p e c i a l i s t s   i n   e v e r y 
p ro d u c t .  th i s   i s   w hy   t h e  tR A c e s  s ys te m   i s 
a   ve r y   va l u a b l e   to o l   to   p rov i d e   BiP   i n s p e c -
tor s wit h upd ated d oc um entat ion . 

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

56

RePLY  of the 
commission

t h e   w e i g h t i n g   g i v e n   t o   e a c h   c r i t e r i o n   i s 
re f l e c te d   i n   t h e   n u m b e r   o f   a s s o c i ate d   s u b -
c r i t e r i a .  t h e   a s s e s s m e n t   g i v e s   a   s n a p s h o t 
of th e sit uation as g ood, ave rag e o r  po or.

7 1.
t h e   a b s e n c e   o f   c o m m e n t s   i s   n o t   i n d i c a -
t i ve   o f   a   p ro b l e m .   m e m b e r   st ate s   t a k e   t h e 
m i s s i o n   p ro gr a m m e   ve r y   s e r i o u s l y,   a s   i t   i s 
b o t h   i m p o r t a nt   to   h e a l t h   p ro te c t i o n   a n d   a 
ser ious  d emand  on  t heir resource s.

7 2. 
A  ‘q u a n t i t a t i v e   m o d e l ’  w a s   d e v e l o p e d   i n 
the past. i t has been found to be ver y cum-
bersome and has not proved to provide any 
better result than the qualitative approach 
c u r r e n t l y   u s e d   ( e v e n   i f   q u a n t i t a t i v e   d a t a , 
s u c h   a s   t ra d e   d at a ,   a re   co n s i d e re d ) .   m o re -
over, the mission prioritisation is discussed 
a n d   a g r e e d   w i t h   m e m b e r   s t a t e s   w h o s e 
in put  in decidin g pr ior itie s is  invaluable.

s ee t he reply  to obser vation 7 3.

effor ts to make better use of data in decid -
in g pr ior ities  continue.

7 3. 
th e   co m m i s s i o n   i s   f u l l y   i m p l e m e nt i n g   t h e 
recommendations made in the independent 
e v a l u a t i o n   o f   m i s s i o n   p r i o r i t y - s e t t i n g   i n 
this respec t. dG  sAnco establishes cr iter ia 
fo r   s e t t i n g   p o t e n t i a l   m i s s i o n   p r i o r i t i e s.   i n 
t h e   p r i o r i t i s at i o n   p ro ce s s   i t s e l f,   t h e y   m u s t 
d e m o n s t rate   a n d   d o c u m e nt   t h at   t h e s e   c r i-
t e r i a   h ave   b e e n   c o n s i s t e n t l y   a p p l i e d.  t h i s 
i n   t u r n   l e a d s   t o   m o re   t r a n s p a re n t   c h o i c e s 
in the event that changes have to be made 
to t he  programme. 

s t a f f   t u r n o v e r,   f o r   t h e   p a s t   s e v e r a l   y e a r s , 
h as not  be en ver y  high. 

64. 
i n   v i e w   o f   t h e   c o u r t ’s   a s s e s s m e n t   o f  
m e m b e r   st ate s’  i nte r n a l   co nt ro l s   i n   o b s e r-
v a t i o n   6 2 ,   i t   i s   t o o   e a r l y   t o   s u g g e s t   a l i g n-
i n g   t h e   c o m m i s s i o n’s   c o n t r o l s   w i t h   t h o s e 
of the m ember states. however, once R egu -
l a t i o n   (e c )   no   8 8 2 / 2 0 0 4   h a s   b e e n   f u l l y 
i m p l e m e n t e d   i n   t h e   m e m b e r   s t a t e s ,   t h e 
co m m i s s i o n’s   o b j e c t i ve   wo u l d   b e   to   p u t   i n 
place such a coo rdinated ap p ro ac h .

65. 
th e  Wh i te   Pa p e r   i s   a   p o l i c y   d o c u m e nt   a n d 
i s   n o t   i n   i t s e l f   a   s u f f i c i e n t   l e g a l   b a s i s   f o r 
any ac t io n.

s e e   a b o v e .   fu r t h e r m o r e ,   R e g u l a t i o n   ( e c ) 
n o   8 8 2 / 2 0 0 4   a p p l i e s   o n l y   p a r t l y   t o   t h i r d 
countr ies.

67. 
t h e   fV o   i s   c o n s t a n t l y   a s s e s s i n g   t h e   e f f i -
c a c y   o f   i t s   w o r k   t o   e n s u r e   t h a t   r e s o u r c e s 
are put  to t he b est u se.

68. 
t h i s   m o d e l   t a k e s   i n t o   a c c o u n t   m o s t   o f  
t h e   re l e va nt   p a ra m e te r s   s p e c i f i e d   i n   p a ra-
g r a p h   3   o f   A r t i c l e   2   o f   t h e   re p e a l e d   d e c i -
sion  20 01/881/ec.

70. 
tr a d e   v o l u m e s   a r e   c l o s e l y   m o n i t o r e d   b y 
t h e   fV o.   t h e y   a r e   p a r t   o f   t h e   c o r p o r a t e 
k n o w l e d g e   o f   t h e   i n s p e c t i o n   t e a m s   a n d 
are taken into account when planning mis -
s i o n s .  t h e   R As f f  m e s s a g e s   a r e   o f   l i m i t e d 
va l u e   fo r   s e l e c t i n g   t h e   m e m b e r   st ate s   b u t 
may be used for selec ting consignments to 
b e   e v a l u a t e d   a t   t h e   i n d i v i d u a l   BiPs   o r   fo r 
s e l e c t i n g   ce r t a i n   t h i rd   co u nt r i e s   o r   e s t a b -
lishments  t here  fo r an  insp ec tio n .

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

75. 
m e m b e r   s t a t e s   a r e   r e q u e s t e d   t o   p r e s e n t 
a c t i o n   p l a n s   t o   t h e   fVo  i n d i c a t i n g   h o w 
t h e y   i n t e n d   t o   a d d r e s s   a n y   s h o r t c o m i n g s 
i d e n t i f i e d   i n   i n s p e c t i o n s .   Ve r i f i c a t i o n   o f 
co r re c t i ve   a c t i o n   i s   a n   i nte gra l   p a r t   o f   t h e 
fVo ’s ac tivit y and the fVo revisits  m ember 
states  reg ul ar l y to m onitor p ro gre ss.

i m p l e m e n t a t i o n   o f   r e c o m m e n d a t i o n s   i s 
c o n t i n u o u s l y   m o n i t o r e d   b y   t h e   c o m m i s -
s i o n .   i n d i c a t o r s   a r e   u s e d   fo r   t h i s   p u r p o s e 
a n d   d e m o n s t r a t e   t h e   e f fe c t i v e n e s s   o f   t h e 
f V o ’s   a c t i v i t i e s .   o v e r a l l ,   b y   t h e   e n d   o f 
2 0 0 9 ,   m e m b e r   s t a t e s   h a d   t a k e n   a c t i o n   o n 
8 6   %   o f   t h e   r e c o m m e n d a t i o n s   m a d e   t o 
t h e m   b y   t h e   fVo  s i n c e   2 0 0 4 .   A c t i o n   w a s 
i n   p r o g r e s s   o n   a   f u r t h e r   1 0   % .   i n   4   %   o f 
c a s e s ,   m e m b e r   s t a t e s   h a d   y e t   t o   c o m m i t 
t h e m s e l ve s   t o   c o r re c t i ve   m e a s u re s.  t h e s e 
c a s e s   a re   fo l l owe d   u p   co n t i n u o u s l y   by   dG 
sAnco . 

78. 
t h e   f V o   c a r r i e s   o u t   o n - t h e - s p o t   c h e c k s 
i n   o rd e r   t o   ve r i f y   m e m b e r   s t a t e s’  c o n t ro l /
audit systems. eu legislation does not stip -
u l a t e   w h e n   BiPs   a r e   t o   b e   r e v i s i t e d .   s c r u -
tiny of tR Ac es dat a sh ows t hat  the 49  B iPs 
refer red to have low throughput and, thus, 
l i m i t e d   c o n t r o l   a c t i v i t i e s .   t h i s   i n d i c a t e s 
t h a t   p r i o r i t y   i s   g i v e n   t o   t h e   m o s t   i m p o r -
ta nt ones. 

5757

RePLY  of the 
commission

t h e   f V o ’s   t a s k   i s   n o t   t o   r e p o r t   o n   b e s t 
p r a c t i c e s   b u t   t o   v e r i f y   p r o p e r   a n d   e f f e c -
t i v e   i m p l e m e n t a t i o n   o f   o f f i c i a l   c o n t r o l s 
a n d   e n fo r c e m e n t   o f   t h e   e u   l e g i s l a t i o n   b y 
e v a l u a t i n g   t h e   p e r f o r m a n c e   o f   m e m b e r 
state c As’ control system. the ac tion plans 
s u b m i t t e d   b y   m e m b e r   s t a t e s   t o   t h e   fVo  
are followed up by inter nal procedures and 
s u p e r v i s e d   b y   a   s p e c i f i c   dG   sAn co  m a n -
age ment committee.

7 9. 
A s   a l re a d y   s t a t e d   i n   t h e   re p l y   t o   o b s e r v a -
t i o n   1 9 ,   t h e s e   d e l a y s   h a d   n o   i m p l i c a t i o n s 
in ter ms of r isks posed to human health by 
impor ted meat and meat produc t s.

8 1. 
R e g a r d i n g   i m p o r t   c o n t r o l s ,   a l l   c u r r e n t 
health cer tificates are available to BiP offi -
c i a l s   a n d   t h e   fVo  v i a   tR A c e s  a n d   a l s o  ‘e u  
authorised ’ third countries and their estab -
lishments. A link is also provided to eu leg -
islat ion for specific req uirements.

ch a n g e s   i n   l e g i s l a t i v e   r e q u i r e m e n t s   a r e 
obviously closely monitored but this is not 
a   r e s o u r c e   d e m a n d i n g   e x e r c i s e   a n d   c e r -
t a i n l y   d o e s   n o t   r e q u i r e   a   f u l l   s t a f f   m e m -
ber.

8 2. 
t h e r e   a r e   e x t e n s i v e   i n f o r m a t i o n   s y s t e m s 
a v a i l a b l e   t o   e n s u r e   t h a t   fVo  s t a f f   a r e 
i n f o r m e d   o f   r e l e v a n t   c h a n g e s   t o   l e g i s l a -
t i o n ,   i n c l u d i n g   t h e i r   f o r m a l   c o n s u l t a t i o n 
i n   t h e   l e gi s l at i ve   p ro ce s s   i t s e l f.   dG   sAn co  
a l s o   h a s   a   d e d i c ate d   s e c t i o n   o f   i t s   we b s i te 
fo c u s e d   o n   i m p o r t   re q u i re m e n t s   a n d   co n -
trols.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

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RePLY  of the 
commission

8 5. 
th e   co s t s   re fe r re d   to   a re   c l e a r l y   i m p o r t a nt 
t o   t h e   c o m p e t i t i v e n e s s   o f   e u r o p e a n   p r o -
d u c e r s .   A n y   c o m p a r i s o n   o f   c o s t s   o f   c o n -
t r o l s   w o u l d   h a v e   t o   t a k e   i n t o   a c c o u n t   a 
w i d e   v a r i e t y   o f   e c o n o m i c   f a c t o r s ,   i n c l u d -
i n g   d i re c t   s u b s i d i e s,   i n d i re c t   s u p p o r t   ( e. g. 
i n   t h e   fo r m   o f   p re fe re n t i a l   i n t e re s t   r a t e s ) , 
the costs of land, building, feed and labour 
a n d   m a ny   o t h e r   f a c t o r s .   i t   s h o u l d   a l s o   b e 
n o t e d   t h a t   t h e   e u  p ro d u c e r s   b e n e f i t   f ro m 
t h i s   s i t u a t i o n   i n   t e r m s   o f   c o m p l e t e   a c c e s s 
to the eu market including for live animals, 
w h i l e   t h i r d   c o u n t r i e s '   p r o d u c e r s   m a y   b e 
able to access such mar ket only for cer tain 
p r o d u c t s   a n d   t h e r e f o r e   i n   a   m u c h   m o r e 
l i m i t e d   m a n n e r.  t h e   c o m m i s s i o n   r e m a i n s 
c o m m i t t e d   t o   c o n t i n u e   t o   c o n s u l t   s t a k e -
h olde rs. 

8 6. 
th i s   re p o r t   w i l l   b e   p re s e nte d   to   t h e   co u n -
c i l   a n d   Pa r l i a m e nt   b e fo re   t h e   e n d   o f   2 0 1 0 , 
a s   re q u e s t e d,   a n d   w i l l   fo c u s   o n   t h e   e f fe c -
t i ve n e s s   a n d   c o n s i s t e n c y   o f   t h e   m e a s u re s 
i n   p l a c e   t o   c o n t r o l   i m p o r t s   o f   f o o d ,   f e e d , 
an imals and plants.

c o n c e r n i n g   t h e   e u r o p e a n   Pa r l i a m e n t ,   t h e 
co m m i s s i o n   l a u n c h e d   t h e   c a l l   fo r   t e n d e r s 
o f   t h e   p i l o t   p ro j e c t   a s s e s s i n g   t h e   e n d - u s e r 
c o s t s   o f   c o m p l i a n c e   w i t h   e u  l e g i s l a t i o n 
i n   2 0 0 9 ,   b u t   d i s c o n t i n u e d   t h e   p r o c e d u r e 
b e c a u s e   i t   h a d   r e c e i v e d   o n l y   o n e   o f f e r.   A 
literature study on this subjec t is cur rently 
bein g prepared.

t h e   r e s u l t s   o f   t h e   e u r o p e a n   P a r l i a m e n t 
s t u d y   w i l l   b e   s c r u t i n i s e d ,   w h e r e   r e l e v a n t , 
by  th e relevant c ommiss ion  depar tments.

83. 
Guidelines for draf ting mAncPs, and ac tion 
descr ibed by the cour t in point 77, are suf-
ficient to allow m ember states to car r y out 
impor t co nt ro ls  ef fec tivel y.

R e g u l a t i o n   (e c )   no   8 8 2 / 2 0 0 4   i m p o s e s   n o 
o b l i g a t i o n   o n   t h e   c o m m i s s i o n   t o   a s s e s s 
m An cP s .   ho w e v e r,   e a c h   m e m b e r   s t a t e 
r e c e i v e s   f e e d b a c k   f r o m   t h e   fVo  o n   i t s 
m An cP   i n   t h e   g e n e r a l   a u d i t   o n   t h e   c o u n -
tr y. on completion of each general audit, a 
repor t is addressed to the m ember state. i t 
contains re co mm endatio ns. 

t h i s   r e g u l a t i o n   i m p o s e s   n o   o b l i g a t i o n   o n 
the commission to provide any assessment 
o f   o r   a d v i c e   o n   m e m b e r   s t a t e s ’  a n n u a l 
r e p o r t s .   ho w e v e r,   t h e   f i r s t   c o m m i s s i o n 
repor t required by Ar ticle 44 of R egulation 
( e c )   n o   8 8 2 / 2 0 0 4   w a s   a d o p t e d   i n   A u g u s t 
2010.

84. 
t h e   r u l e s   o n   i m p o r t s   o f   m e a t   i n t o   t h e   e u 
i n c l u d e   a   r e q u i r e m e n t   t h a t   a n i m a l s   m u s t 
b e   h u m a n e l y   s l a u g h t e r e d   i n   a c c o r d a n c e 
w i t h   e u  l e g i s l a t i o n .   t h e   q u e s t i o n   o f   c o m -
p e t i t i ve n e s s   w i t h   t h i rd   co u nt r i e s   h a s   b e e n 
a s s e s s e d   i n   a   c o m m i s s i o n   r e p o r t   t o   t h e 
c o u n c i l   a n d   P a r l i a m e n t   ( c o m( 2 0 0 2 )   6 2 6 
f i n a l ) ,   c o n c e r n i n g   a n i m a l   w e l f a r e   l e g i s l a -
t i o n   fo r   f a r m e d   a n i m a l s   i n   t h i rd   c o u n t r i e s 
a n d   t h e   i m p l i c a t i o n s   fo r   t h e   e u.  th e   co m -
mission is now reassessing the issue in the 
c o n t e x t   o f   i t s   e v a l u a t i o n   o f   e u  p o l i c y   o n 
a n i m a l   w e l f a r e ,   t h a t   w a s   d u e   t o   b e   p u b -
lished in d ece mb er 2010.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

5959

RePLY  of the 
commission

conclusions And  
recommendAtions

87. 
V e t e r i n a r y   r u l e s   f o r   i m p o r t   c h e c k s   a r e 
g o ve r n e d   b y   di re c t i ve   9 7 / 7 8 /e c  a n d   we re 
l a rg e l y   u n a f fe c te d   by   t h e  Wh i te   Pa p e r   a n d 
t h e  ‘ h y g i e n e   p a c k a g e’.   R u l e s   o n   a p p r o v a l 
of third countr ies and establishments were 
r e d r a f t e d   i n   t h e   ‘ h y g i e n e   p a c k a g e ’  b u t 
rema in similar  to  the p revious  ru l e s. 

i n d i c a t o r s   o n   p r e - e x p o r t   c h e c k s   a r e   n o t 
r e q u i r e d   e i t h e r   b y   t h e   e u  l e g i s l a t i o n   o n 
p r e - e x p o r t   c h e c k s   ( w h i c h   a r e   n o t   e v e n 
required) or by inter national recommenda-
tions or standards regarding determination 
of equival ence. 

VA s   h a v e   b e e n   s i g n e d   w i t h   h i g h l y   d e v e l -
o p e d   c o u n t r i e s ,   i n   w h i c h   t r u s t   h a s   b e e n 
e s t a b l i s h e d   w i t h   t h e i r   c A s .   R e d u c t i o n s   i n 
p h y s i c a l   c h e c k s   o n   i m p o r t s   w e r e   a g r e e d 
only in cases of highly positive fVo repor ts 
o n   t h e   c A s ’  c o n t r o l   s y s t e m s   f o r   t h e   r e l e -
va nt  commo dities.

88. 
t h e   o b l i g a t i o n   t o   c o n d u c t   v e t e r i n a r y 
c h e c k s   o n   m e at   i m p o r t s   i s   e n s h r i n e d   i n   e u 
l e g i s l a t i o n .   t h e   R As f f ,   tR A c e s  a n d   fVo  
inspec tion mission repor ts and other infor-
m a t i o n   f r o m   t h i r d   c o u n t r i e s   m e r e l y   s e r v e 
a s   to o l s   to   h e l p   t h e   co m m i s s i o n   e s t a b l i s h 
t h e   r i s k   i n v o l v e d   a n d   t h u s   d e t e r m i n e   t h e 
levels of physic al  ch ecks ap p l icab l e.

tR A c e s  i s   a   re l a t i ve l y   n e w   t o o l   a n d   e ve r y 
e f f o r t   i s   b e i n g   m a d e   t o   e n s u r e   t h a t   i t   i s 
used  unifo r ml y by ever y m em b er s tate. 

users of the R Asff aler t system depend on 
the timeliness and accurac y of the informa-
tion  foun d in it, much  of whic h th e y th em -
s e l v e s   a r e   r e s p o n s i b l e   f o r   s u p p l y i n g .   t h e 
co m m i s s i o n   i s   co n s t a nt l y   l o o k i n g   fo r   ways 
to   e n s u re   t h at   t h i s   s ys te m   p rov i d e s   u p - to -
d a t e   a n d   a c c u r a t e   i n f o r m a t i o n   o n   a l e r t s 
i n   o rd e r   to   f a c i l i t ate   t h e   r i s k   m a n a g e m e nt 
d e c i s i o n s   n e e d e d   t o   e n s u r e   t h a t   p r e v e n -
t i v e   a n d / o r   c o r r e c t i v e   a c t i o n   i s   t a k e n   a s 
and when required. the system operates in 
a time ly an d propor tionate man ne r. 

8 9. 
the reply to obser vation 75 explained how 
m e m b e r   st ate s   co m m i t   t h e m s e l ve s   to   co r-
r e c t i v e   a c t i o n   a n d   h o w   t h e   c o m m i s s i o n 
m o n i t o r s   i m p l e m e n t a t i o n   t h e r e o f.   i t   a l s o 
e x p l a i n s   t h e   s t a t e   o f   i m p l e m e n t a t i o n   a t 
th e en d of 20 09 . 

9 0. 
first   indent
un d e r   t h e  VA s,   t o t a l   e q u i v a l e n c e   i s   r a re l y 
a c h i e v e d ,   m e a n i n g   t h a t   t h e   n a t i o n a l   l e g -
i s l a t i o n   o f   t h e   i m p o r t i n g   t h i r d   c o u n t r y 
a p p l i e s   t o   e x p o r t s   f r o m   m e m b e r   s t a t e s . 
di f fe re n ce s   co u l d   t h e re fo re   ex i s t   b e t we e n 
m e m b e r   s t a t e s   i n   a c h i e v i n g   t h i r d   c o u n -
tr ies’ sanitar y requirements or level of offi -
cial control of these requirements. i n addi-
t i o n ,   r e g a r d i n g   a n i m a l   h e a l t h   s t a t u s ,   tc s 
a r e   o f t e n   s l o w   t o   a c c e p t   m e m b e r   s t a t e s ’ 
g u a r a n t e e s.   L a s t l y,   t h i rd   c o u n t r i e s   d o   n o t 
a l w a y s   c o n s i d e r   t h e   e u  a s   a   s i n g l e   e n t i t y 
whe n con sider ing  m ember  s tates’ expor ts.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

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RePLY  of the 
commission

fo ur th  indent
c u r r e n t   l e g i s l a t i o n   d o e s   n o t   p r o v i d e   t h e 
co m m i s s i o n   w i t h   l e g a l   p owe r s   to   d e ve l o p 
s u c h   g u i d e l i n e s .   t h i s   n o t w i t h s t a n d i n g , 
t h e   c o m m i s s i o n   e n g a g e s   i n   m a n y   d i f f e r -
e n t   a c t i v i t i e s   w h i c h   e n s u r e   a   h a r m o n i s e d 
a p p ro a c h   to   t h e   ve te r i n a r y   c h e c k s   c a r r i e d 
out in BiPs.  these include regular meetings 
with competent author ities from the  m em -
b e r   s t a t e s   i n   d i f f e r e n t   w o r k i n g   g r o u p s , 
f o r   e x a m p l e   t h e   Ve t e r i n a r y   ch e c k s   Wo r k -
i n g   G r o u p   t h a t   m e e t s   t h r e e   t o   f o u r   t i m e s 
a year, training provided to BiP staff under 
t h e   ‘ B e t t e r   t r a i n i n g   f o r   s a f e r   f o o d ’  p r o -
gra m m e   ( Bts f)   a n d,   o f   co u r s e,   t h ro u g h   e u 
l e g i s l a t i o n   w h i c h   i s   v e r y   p r e s c r i p t i v e   a n d 
clear as  to th e exac t roles  of BiPs.

fif t h in dent
c u r r e n t   l e g i s l a t i o n   d o e s   n o t   p r o v i d e   t h e 
co m m i s s i o n   w i t h   l e g a l   p owe r s   to   d e ve l o p 
such indicators. fVo audit mission repor ts, 
fo l l o w - u p   a c t i o n   a n d   v a r i o u s   r e p o r t s   a r e , 
h o w e v e r,   t o o l s   t h a t   a r e   i n   p l a c e   w h i c h 
a l l o w   a n   a s s e s s m e n t   t o   b e   m a d e   o f   t h e 
i m p l e m e n t a t i o n   o f   e u  l e g i s l a t i o n ,   i n c l u d -
i n g   c o n t r o l   a n d   e n f o r c e m e n t ,   e s p e c i a l l y 
with  respec t  to the  ‘ hygien e  pack age’.

s econd i ndent
t h e   g e n e r a l   f o o d   l a w   a n d   t h e   ‘ h y g i e n e 
p a c k a g e ’,   i n c l u d i n g   R e g u l a t i o n   (e c ) 
no  8 8 2 / 2 0 0 4 ,   c a m e   i nto   b e i n g   i n   2 0 0 2   a n d 
2 0 0 4   r e s p e c t i v e l y.   t h e   c o m m i s s i o n   h a s 
already simplified its regulator y framework 
in order to consolidate it and make it more 
u s e r - f r i e n d l y.  t h e   co m m i s s i o n   i s   c o m m i t -
t e d   t o   c o n t i n u e   t h i s   p ro c e s s   a s   p a r t   o f   i t s 
o v e r a l l   e f f o r t s   t o   p r o m o t e   b e t t e r   r e g u l a -
t i o n .   m o s t   o f   t h e   co n s o l i d a te d   ve r s i o n s   o f 
e u  l e g i s l a t i o n   a r e   a v a i l a b l e   i n   t h e   c eLeX 
d a t a b a s e ,   w h i c h   i s   a c c e s s i b l e   t o   t h e   g e n -
e r a l   p u b l i c ,   a n d   i n   t h e   tR A c e s  d a t a b a s e , 
wh ich is accessib l e to BiPs  and o p e rator s.

third i nd ent
t h e   n e w   R As f f  s y s t e m   i s   a   w e b - b a s e d 
a p p l i c a t i o n   t h a t   a l l o w s   m e m b e r   s t a t e s 
a n d   t h e   co m m i s s i o n   t o   e n t e r   i n fo r m a t i o n 
o n   a l e r t s   a n d   n o t i f i c a t i o n s   d i re c t l y   i n   t h e 
a p p l i c a t i o n .   tR A c e s  d o e s   n o t   n e e d   t o   b e 
f u r t h e r   d e v e l o p e d   t o   d i s p l a y   a n y   d a t a , 
b u t   t h e   l e g a l   b a s e   (c o m m i s s i o n   d e c i s i o n 
2 0 0 4 / 2 9 2 /e c )   i m p o s i n g   t h e   o b l i g a t i o n   o n 
t h e   m e m b e r   s t a t e s   t o   u s e   tR A c e s  m u s t 
b e   c h a n g e d   to   e n s u re   t h at   m e m b e r   s t ate s 
e n t e r   r e l e v a n t   i n f o r m a t i o n   b e f o r e   t h e 
m o v e m e n t   o f   c o m m o d i t i e s .  t h i s   i s   e s s e n -
t i a l   to   o b t a i n   a l l   re l e va nt   d at a   a n d   to   p ro -
vide accurate infor mation in the event of a 
sanitar y aler t. the manner in which tR A ces 
o p e r a t e s   w i l l   b e   f u r t h e r   s t r e n g t h e n e d   i n 
th e a nimal  heal th  l aw.

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

6161

RePLY  of the 
commission

eig ht h ind ent
Agreed  and in  progress.

9 1. 
W t o  m e m b e r   s t a t e s   a r e   p e r m i t t e d   t o 
a p p l y   sP s  m e a s u re s   t h a t   g o   b e yo n d   i nte r -
n at i o n a l l y   a cce p te d   s t a n d a rd s   i f   t h e s e   a re 
d e m o n s t r a t e d   t o   b e   s c i e n c e - b a s e d ,   n o n -
d i s c r i m i n a t o r y   a n d   p ro p o r t i o n a t e.   i m p o r t 
rules must remain focused on safet y whilst 
s i m u l t a n e o u s l y   r e s p e c t i n g   i n t e r n a t i o n a l 
o b l i g a t i o n s.  th e   co m m i s s i o n   i s   f u l l y   co m -
mitted to car r ying out impac t assessments 
on proposals with implications for compet-
itiveness, in keeping with the polic y objec-
t i ve s   o f   t h e  ‘ B e t te r   re g u l at i o n’  a n d  ‘e u ro p e 
2 02 0’ init iatives.

th i s   re p o r t   w i l l   b e   p re s e nte d   to   t h e   co u n -
c i l   a n d   Pa r l i a m e nt   b e fo re   t h e   e n d   o f   2 0 1 0 , 
a s   re q u e s t e d,   a n d   w i l l   fo c u s   o n   t h e   e f fe c -
t i ve n e s s   a n d   c o n s i s t e n c y   o f   t h e   m e a s u re s 
i n   p l a c e   t o   c o n t r o l   i m p o r t s   o f   fo o d ,   fe e d , 
an imals and plants. 

t h e   r e s u l t s   o f   t h e   e u r o p e a n   P a r l i a m e n t 
s t u d y   w i l l   b e   s c r u t i n i s e d ,   w h e r e   r e l e v a n t , 
by  th e relevant c ommiss ion  depar tments.

six th inde nt
An ex ter nal evaluation made recommenda -
t i o n s   o n   t h e   r i s k   a s s e s s m e n t   m o d e l s   u s e d 
b y   t h e   fVo  w h i c h   h a v e   b e e n   f o l l o w e d   b y 
t h e   fVo .   ho w e v e r,   q u a n t i t a t i v e   m o d e l s 
h a v e   v e r y   i m p o r t a n t   l i m i t a t i o n s   d u e   t o 
t h e   c o m p l e x i t y   o f   t h e   r i s k   f a c t o r s   i m p a c t -
i n g   o n   i m p o r t s   a n d   c o u l d   i n d e e d   l e a d   t o 
s e r i o u s l y   m i s l e a d i n g   s i gn a l s   o n   p r i o r i t i e s. 
A c c o r d i n g l y ,   t h e   m i s s i o n   p r i o r i t i s a t i o n 
p r o c e s s   c o n t i n u e s   t o   r e l y   e x t e n s i v e l y   o n 
e x p e r i e n c e ,   j u d g e m e n t   a n d   c o n s u l t a t i o n 
of relevant stakeholders and especially the 
member states’ control authorities. i n addi-
t i o n ,   q u a n t i t a t i v e   f a c t o r s   s u c h   a s   i m p o r t 
quantit ie s  and  t yp es   o f  p rodu c t s   impo r te d 
a r e   d a t a   i n t e g r a t e d   i n   t h e   a n a l y s e s   m a d e 
pr ior to mission planning. the scope of the 
r e c o m m e n d a t i o n   g o e s   b e y o n d   t h e   s e c t o r 
a u d i t e d .   on l y   o n e   r i s k   a s s e s s m e n t   m o d e l 
has been looked at by the cour t. A process 
t o   f o r m a l i s e   f u r t h e r   s e l e c t i o n   o f   t h e   BiPs 
to be visited has co mmenced. 

s eventh ind ent
i n  addit ion   to   c ar r y ing  o ut   s p eci fi c   foll ow-
u p   i n s p e c t i o n s   i n   s p e c i f i c   s e c to r s,   t h e   fVo  
i nt ro d u ce d  ‘g e n e ra l   fo l l ow- u p   m i s s i o n s’  i n 
2005 in order to review progress on imple -
m e n t a t i o n   o f   t h e   re c o m m e n d a t i o n s   m a d e 
a c ro s s   a l l   s e c t o r s.  t h i s   p ro c e s s   h i g h l i g h t s 
i s s u e s   w h e re   m e m b e r   st ate s   h ave   f a i l e d   to 
t a k e   c o r re c t i ve   m e a s u re s.  t h e s e   c a s e s   a re 
fo l l owe d   u p   co n t i n u o u s l y   a n d,   d e p e n d i n g 
o n   t h e   g r a v i t y   o f   e a c h   s p e c i f i c   c a s e ,   t h e 
n e e d   f o r   s p e c i f i c   e n f o r c e m e n t   a c t i o n   i s 
r o u t i n e l y   a s s e s s e d .   A n   i n t e r n a l   f o l l o w - u p 
p r o c e d u r e   a l r e a d y   e x i s t s   i n   o r d e r   t o   p r o -
duce fur ther improvements following nega-
t i ve   fVo  f i n d i n g s   a n d   i s   u s e d   i n   t h e   s a m e 
w ay   a n d   w i t h   t h e   s a m e   d e gre e   o f   s e ve r i t y 
w i t h   r e g a r d   t o   i m p o r t   c o n t r o l   i s s u e s   a s 
m ember s t ate s’ p rod uc t io n co ntrol s. 

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

special Report no 14/2010 —  the commission’s management of the system of veterinary checks for meat imports following the 2004 hygiene legislation reforms

63

european court of Auditors

special report no 14/2010

the commission's management of the system of veterinary checks for meat imports following the 2004 hygiene 

legislation reforms

Luxembourg: Publications office of the european union

2011 — 61 pp. — 21 × 29,7 cm

isBn 978-92-9207-972-7

doi:10.2865/60524

how to obtain eu publications

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