COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL AND THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE 20 actions for safer and compliant products for Europe: a multi-annual action plan for the surveillance of products in the EU
Date: 2013-02-13
Institutions: European Commission
Subjects: customs inspection, economic growth, exchange of information, market supervision, marketing standard, product safety, restriction on competition, single market

EUROPEAN 
COMMISSION 

Brussels, 13.2.2013  
COM(2013) 76 final 

PRODUCT SAFETY AND MARKET SURVEILLANCE PACKAGE 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL AND THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE 

20 actions for safer and compliant products for Europe: a multi-annual action plan for 
the surveillance of products in the EU 

(Text with EEA relevance) 

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COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL AND THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE 

20 actions for safer and compliant products for Europe: a multi-annual action plan for 
the surveillance of products in the EU 

(Text with EEA relevance) 

1. 

INTRODUCTION  

The surveillance of the internal market for products is, in practice, an enormous challenge: the 
range of products to be controlled is very wide, many are imported from outside the Union, 
Member  States  have  limited  resources  to  perform  checks  and  inspections  and  the  need  for 
controls  in  the  Member  States  depends  on  various  factors,  such  as  the  geographical  and 
administrative structure of a country. 

Performing  market  surveillance  requires  a  sound  infrastructure,  efficient  organisation  and 
specialist  knowledge.  The  combination  of  these  elements  is  essential  to  achieving  the  twin 
objectives of protecting the citizen and ensuring fair competition. The organisation of market 
surveillance  has  to  be  frequently  adapted  to  cope  with  evolving  needs  and  a  changing 
industrial environment. 

The  core  of  market  surveillance  is  a  chain  of  interdependent  processes  such  as  inspections, 
sampling,  laboratory  testing,  interpretation  of  results,  risk  assessment,  decision  making, 
intervention  and  ensuing  legal  procedures  which  may  involve  corrective  measures  or  even 
sanctions.  The  multi-annual  market  surveillance  action  plan  is  one  of  the  50  action  points 
listed in the “Single Market Act”1. It will introduce a number of objectives to be pursued and 
measures  to  be  taken  to  achieve  its  political  objectives  and  eliminate  market  dysfunctions. 
The Single Market Act II2 reiterates the need to improve the safety of products circulating in 
the EU. 

This plan aims to fill gaps and make the surveillance of the single market for products (with 
the  exception  of  food,  feed  and  medicines)  more  efficient  and  operational  to  properly 
implement  the  relevant  provisions  of  Regulation  (EC)  No  765/2008  setting  out  the 
requirements  for  accreditation  and  market  surveillance3  and  Directive  2001/95/EC  of  the 
European Parliament and Council on general product safety4. It is part of a wider package that 
also  includes  proposals  for  a  Regulation  on  Consumer  Product  Safety  and  a  Regulation  on 
Market Surveillance. The plan complements – and must be read in conjunction with - these 
initiatives  but,  pending  the  final  adoption  of  these  legislative  proposals,  it  builds  on  the 

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COM(2011) 206 final 
COM(2012) 573 final 
OJ L 218, 3.8.2008, p. 30 
OJ L 11, 14.1.2002, p .4 

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existing set of rules and programmes5. It also takes into account the problems outlined in the 
impact assessment that accompanies this package. 

The Commission intends to implement this plan with effect from its adoption, until 2015. At 
that  time,  it  will  assess  whether  a  future  multi-annual  plan  is  necessary.  However,  not  all 
actions will start at the same moment and the duration of each action will be dictated by its 
specific needs.  

The  main  objective  of  this  plan  is  to  outline  the  non-legislative  action  that  the  Commission 
will take to reduce the number of unsafe or non-compliant products and ensure the efficiency 
and effectiveness of the surveillance of products both within the Union and on entry into the 
Union.  

2. 

EFFICIENCY AND EFFECTIVENESS GAINS WITHIN THE EU  

Market  surveillance  authorities  must  be  properly  organised  and  equipped  to  cope  with  the 
obligations  and  requirements  of  the  relevant  Union  legislation.  However,  experience  has 
revealed gaps in the Union market surveillance framework. To conduct effective and efficient 
market  surveillance,  responsible  national  authorities  need  a  sound  infrastructure,  good 
organisation,  appropriate  legal  powers,  suitable  facilities  and  equipment  and  competent  and 
skilled officers, benefiting from high quality training. 

2.1. 

Pooling of information stemming from investigations  

To verify whether a product poses a risk or is non-compliant with the applicable requirements, 
tests and checks are usually required in order to provide information for the risk assessment. 
Tests  entail  high  costs.  Sometimes  competent  authorities  lack  the  technical  expertise  to 
properly  perform  tests  and  also  interpret  the  test  results.  Appropriate  coordination, 
cooperation, training and information sharing is therefore essential in this area. 

Action 1: Facilitate the 'portability' of test reports in the Union 

The  Commission  will  promote  the  use,  among  the  relevant  market  surveillance  authorities 
including those responsible for external border controls, of results of tests already performed 
in  one  Member  State  by  other  Member  States  and  will  also  facilitate  their  distribution  via 
ICSMS.  

Sharing information between market surveillance authorities and with customs across the EU 
is  essential  to  avoid  double  work.  Information  Technology  systems  are  the  best  way  to 
achieve  this  since  they  enable  efficient  work  flows  and  allow  swift  and  easy  retrieval  and 

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The Union financing which may be necessary for specific actions will be granted in accordance with the 
provisions of Regulation (EC) No 765/2008 of the European Parliament and of the Council of 9 July 
2008 setting out the requirements for accreditation and market surveillance relating to the marketing of 
products  and  repealing  Regulation  (EEC)  No  339/93  [OJ  L  218  of  3.8.2008,  p.30],  Decision  No 
1926/2006/EC  of  the  European  Parliament  and  of  the  Council  of  18  December  2006  establishing  a 
programme of Community action in the field of consumer policy (2007-2013) [OJ L 404 of 30.12.2006, 
p.  39]  and,  possibly,  the  future  Regulation  of  the  European  Parliament  and  of  the  Council  on  a 
consumer programme 2014-2020, and Decision No 624/2007/EC of the European Parliament and of the 
Council  of  23  May  2007  establishing  an  action  programme  for  customs  in  the  Community  (Customs 
2013)  [OJ  L  154,  14.6.2007,  p.  25]  or  its  successor.  All  the  actions  in  this  plan  are  compatible  and 
coherent with existing or proposed legislation. 

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exchange of information. The new IT platform GRAS-RAPEX6 is used for the Member States 
to submit RAPEX notifications. On the other hand the ICSMS7 tool offers fast and efficient 
communication  means  for  market  surveillance  authorities  to  exchange  information  within  a 
short space of time. ICSMS is not an alert system but a market surveillance general archiving 
and  information-sharing  tool  that  aids  in  establishing  a  co-operation  mechanism  among 
authorities and a general information tool on market surveillance. The ICSMS could also be 
enlarged  for  the  exchange  of  information  between  customs  authorities  as  well  as  with  the 
national competent authorities.  

Action 2: Maximise the benefits of ICSMS 

ICSMS  will  be  developed  further  to  collect,  store  and  exchange  information  and  best 
practices among all the actors directly concerned. This will include eventually the publication 
of  test  results,  results  of  joint  actions,  guidelines  and  guidance  for  training  of  market 
surveillance  authorities,  case  studies,  statistics  and  overall  information  on  market 
surveillance for products.  

Action 3: Create synergies between GRAS-RAPEX and ICSMS 

GRAS-RAPEX and ICSMS have very distinct functions and are therefore kept separately. The 
Commission,  in  regard  of  the  GRAS-RAPEX  and  ICSMS  distinct  objectives,  will  develop, 
however, synergies between both systems.  

In addition, data related to accidents and injuries caused by unsafe products should feed into 
the market surveillance efforts. Although Regulation 765/2008 (Article 18) obliges Member 
States  to  monitor  accidents,  little  has  happened  in  practice,  considering  the  many  practical 
difficulties  to  establish  a  reporting  system  that  could  be  helpful  for  all  authorities  and 
economic operators.  

Action 4: Assess the cost/benefit of an EU accident/injury database (AIDB) 

The Commission will examine the feasibility of a public Consumer Product Safety Information 
Database,  which  could  include  a  platform  for  complaints  and  injuries.  It  will  take  into 
account the achievements made by EUROSAFE, OECD and other relevant tools available in 
this area8.  

2.2. 

A common approach to risk assessment 

One of the most challenging activities for market surveillance authorities is the identification 
and correct assessment of the risk presented by a product. To facilitate the effectiveness and 
efficiency  of  the  risk  assessment,  the  Commission  has  already  developed  a  risk  assessment 
methodology available in the RAPEX Guidelines (OJEU No L 22 of 26.01.2010). However, 
this methodology has to be updated and cover all risks. 

Action 5: a EU general risk assessment methodology for products 

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GRAS-RAPEX  replaced  the  old  IT  system  RAPEX-REIS  and  extended  the  scope  of  RAPEX  to 
professional products and to other risks than health and safety. 
Information and Communication System for Market Surveillance (www.icsms.org) 
As for example sector-specific data collection tools like the Community Database on Road Accidents 
established by Council Decision 93/704/EEC. 

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The Commission will complete and update the general risk assessment methodology available 
in the RAPEX Guidelines so that they cover the other risks. 

2.3. 

Performance Benchmarks for market surveillance 

The  study  "Future  of  Market  Surveillance"9  showed  that  there  is  very  little  performance 
information  regarding  the  market  surveillance  activities  of  Member  States  available,  and 
accurate benchmarking is impossible. It also suggested that Member States find the provision 
of information an unnecessary burden, but probably as a result of not recording the required 
information in an easily accessible format.  

In  order  to  allow  for  benchmarking  and  comparability  of  indicators  of  market  surveillance 
performance  in  Member  States  the  European  Commission  established  in  2008  a  data 
collection  tool  dedicated  to  collection  of  data  which  measure  the  key  activities  of  national 
authorities in charge of product safety enforcement. However, despite a continuous effort on 
the  quality  and  scope  of  the  enforcement  indicators,  the  accuracy  and  the  usefulness  of  the 
information collected as well as its comparability - which allows the identification of strong 
and  weak  links  in  the  EU  market  surveillance  enforcement  framework  -  remains  limited.  In 
addition,  there  is  no  reporting  on  the  results  of  border  controls.  The  Administrative 
Cooperation  Groups  (ADCOs)  should  be  used  for  such  benchmarking,  in  their  respective 
areas of competence.  

Action 6: Developing Key Performance Benchmarks for market surveillance 

The  Commission  will  ensure  the  improvement  of  the  data  collection  system  and  determine, 
together  with  the  market  surveillance  authorities,  the  most  important  key  relevant 
enforcement  indicators  that  should  be  collected  in  the  medium  term.  The  Commission  will 
also  collect  data  from  the  Member  States  on  the  results  of  border  controls  from  2013  and 
publish an annual report from 2015. 

2.4. 

Facilitate controls for high tech and innovative products 

It is generally recognised that it is very difficult to perform safety controls on products that 
hold dangerous substances such as cadmium and lead, or for high technology products like the 
electronic weighing instruments. The control of the conformity of these categories of products 
can  be  done  only  by  destroying  the  sample,  very  often  incurring  high  costs  and  involving 
difficulties  in  demonstrating  a  posteriori  non-compliance.  The  products  concerned  are 
covered by EU legislation, and are very numerous. At present, given the difficulties described 
above,  it  is  not  clear  if  these  products  are  controlled  only  by  documentary  and  physical 
checks, but also by laboratory checks on the characteristics of the products - as required by 
Regulation 765/200810.  

Action  7:  Examine  the  feasibility  of  safety  and  compliance  controls  for  high  tech  and 
innovative products  

The Commission will examine the feasibility of facilitating the safety/compliance controls by 
national authorities for high tech and innovative products. This will have a twofold objective 
(a) facilitate the checks by Member States and (b) avoid a situation where these products are 

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The future of market surveillance in the area of non-food consumer product safety under the General 
Product Safety Directive, Final Report, March 2011, BSI Development Solutions, May 2011, p. 13. 
See Article 19(1) 

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never  properly  checked  as  a  result  of  technical  difficulties.  The  feasibility  will  take  into 
account the specificities of SMEs. 

3. 

A CLOSER COOPERATION THROUGHOUT THE UNION 

The  rapid  integration  of  the  single  market  for  products,  the  fact  that  more  and  more 
transnational  businesses  are  developing  and  offering  a  wide  range  of  products  in  several 
Member  States,  the  development  of  e-commerce  across  borders  in  Europe  and  the  growing 
number of imports of products manufactured outside the EU, means there is a need for more 
cross-border cooperation on market surveillance. It is therefore important that the organisation 
of market surveillance activities mirrors developments on the European product market, inter 
alia to ensure the sharing of information on inspection results and to avoid the repetition of 
tests. 

3.1. 

Coordination of cross-border surveillance activities 

The  accompanying  legislative  proposal  for  a  Regulation  on  Market  Surveillance  aims  to 
strengthen and streamline European procedures for the exchange of information about unsafe 
or  non-compliant  products,  through  a  stronger  RAPEX  procedure,  and  the  integration  of 
'safeguard  procedures'  for  certain  products  that  often  bear  the  CE  marking.  Nevertheless, 
better  exchange  of  information  also  depends  on  more  and  increasingly  coordinated  cross-
border market surveillance activities, coordinated planning and mutual assistance.  

To  this  end,  the  proposal  for  a  Regulation  on  Market  Surveillance  suggests  establishing  an 
'EU  Market  Surveillance  Forum'  and  an  Executive  Secretariat  to  assist  it,  with  the 
participation of all Member States, to facilitate the coherent implementation of the activities 
covered by this plan or in the relevant EU legislation. The ADCOs will also be part of this EU 
Market Surveillance Forum. 

Action 8: Prepare the creation of an Executive Secretariat  

The  future  EU  Market  Surveillance  Forum  needs  organisational  assistance  to  perform  its 
tasks. The Commission will establish an Executive Secretariat that will assist the EU Market 
Surveillance Forum. 

3.2. 

Joint enforcement actions  

The  creation  of  the  Internal  Market  ensures  that  products  circulate  freely  across  the  Union. 
Unfortunately, many market surveillance activities are still limited to the national territory and 
their  results  are  not  always  made  available  to  other  authorities.  More  coordination  of  the 
practical  enforcement  work  is  paramount  to  achieve  a  level  playing  field  for  economic 
operators and an equal level of consumer protection across the EU. 

Action 9: Joint enforcement activities 

The Commission will provide financial support for joint enforcement actions, allowing market 
surveillance  authorities  and  customs  to  pool  resources  and  expertise  and  to  apply  SME-
friendly  methods.  The  main  objective  of  this  initiative  is  to  enhance  the  efficiency  and 
effectiveness of the surveillance system in Europe, as well as to improve the coordination of 
the  practical  enforcement  work  carried  out  in  relation  to  product  categories  or  other 
priorities.  

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3.3. 

Exchanges of officials 

To  encourage  market  surveillance  authorities  to  share  and  gain  experience  and  expertise  in 
product  safety  and  market  surveillance  mechanisms,  the  Commission  will  provide  financial 
support for exchanges of officials between Member States.  

Action 10: Exchange of officials 

The Commission will provide financial support for exchanges of officials in the area of non-
food consumer products and service safety. 

3.4. 

Closer European cooperation on market surveillance  

European  cooperation  on  market  surveillance  for  products  that  are  subject  to  Union 
harmonisation legislation usually takes place through informal groups of market surveillance 
authorities.  They  meet  in  the  informal  and  sectorial  'Administrative  Cooperation'  groups, 
known as ADCOs, which discuss market surveillance problems in their area. These groups are 
often chaired by a representative of a national market surveillance authority. However, as the 
organisation  of  the  meetings  of  these  groups  represents  a  considerable  administrative 
challenge for the chairperson, while many of the market surveillance authorities cannot attend 
these  meetings  as  a  consequence  of  budgetary  constraints,  the  Commission  proposes  to 
increase its support for these groups. 

Action 11: More support for 'Administrative Cooperation groups' (ADCOs) 

The  Commission  will  provide  financial  support  towards  the  administrative  functioning  of 
most of these groups so that the administrative burden of the organisation of these meetings 
can  be  reduced.  The  Commission  will  also  discuss  with  the  ADCOs  the  most  cost-efficient 
method  for  the  reimbursement  of,  or  financial  support  for  the  travel  costs  of  market 
surveillance authorities that wish to attend the meetings of the selected groups. 

3.5. 

Products sold on-line  

E-commerce  is  expanding  rapidly  and  constitutes  a  new  challenge  for  market  surveillance 
authorities.  The  public  consultation  on  the  revision  of  the  General  Product  Safety  Directive 
indicated  that  market  surveillance  activities  with  respect  to  products  marketed  online  take 
place in a fairly incidental, fragmented and uncoordinated manner11.  

As  a  consequence,  the  level  of  protection  and  legal  support  of  consumers  and  other  users 
against  risks  posed  by  unsafe  products  sold  on-line  lags  behind  the  level  of  protection 
provided in respect of other distribution channels. Consumers often buy products online and 
face problems if the product is unsafe or non-compliant. Unsafe products that were withdrawn 
and recalled from the EU market may still be available to final users via the Internet. 

Action 12: Products sold on-line 

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According to the public consultation (performed in summer 2010), only half of the national authorities 
have specifically monitored products sold online at a certain point of time during the last three years. A 
large  majority  of  those  national  market  surveillance  authorities  which  performed  some  monitoring  of 
products sold online had difficulties indicating the number of websites checked, the number of products 
targeted or the number of products sampled for further tests. 

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The Commission intends to: 

- study the ways in which e-shops selling consumer products operate, including the location of 
large  e-commerce  operators,  e-commerce  supply  depots  and  e-commerce  supply  routes,  in 
particular if products are distributed to the final consumer directly from third countries and 
the role and importance of SMEs in the e-commerce supply-chain; 

- establish, together with the Member States, a common understanding/approach of the ways 
in  which  the  surveillance  of  products  sold  online  should  be  performed  in  the  Union  and 
produce  guidance  on  the  enforcement  of  the  rules  for  products  sold  online,  especially  in 
cross-border situations that require cooperation between the authorities of different Member 
States or third countries; 

-  collect  information  from  the  Member  States  enforcement  authorities/agencies  on  such 
enforcement activities; 

-  educate  consumers  and  define  the  roles  and  responsibilities  of  the  relevant  parties 
(authorities, economic operators and consumers) in the form of short, simple and clear public 
information statements. 

3.6. 

A continuous European dialogue with stakeholders 

Market surveillance concerns all parties in the supply chain, and needs the input of consumer 
organisations  and  businesses,  and  especially  small  and  medium-sized  enterprises  (SMEs), 
relating to their problems and concerns. SMEs play a key role in shaping Europe's economy. 
However, the administrative burden related to market surveillance controls is comparatively 
heavier for SMEs than for major businesses. 

Under current EU legislation businesses must take action if they know or ought to know that 
their products present a risk. They are obliged to inform the national authorities, who use the 
RAPEX system to ensure that all Member States are made aware and take appropriate action 
on their territories. However, European organisations representing the interests of consumers, 
SMEs and other businesses have not yet been systematically involved in European efforts to 
improve market surveillance. This should change. 

The  proposal  for  the  Market  Surveillance  Regulation  envisages  an  active  role  for  European 
businesses  and  consumer  organisations  in  the  European  Market  Surveillance  Forum.  Until 
then, it would be helpful for market surveillance to involve them more closely in identifying 
problems,  listing  categories  of  products  that  need  closer  attention  and  finding  effective 
solutions. 

Action  13:  The  active  involvement  of  European  organisations  representing  consumers, 
SME and other businesses 

Dialogue  and  cooperation  with  organisations  representing  consumers,  SMEs  and  other 
businesses is essential. They know the products and the risks that they can present to users. 
The  Commission  will  improve  channels  for  providing  feedback,  input  and  suggestions  on 
market surveillance in the Union and on the implementation of this multi-annual plan. This 
will  help  to  identify  new  needs  for  market  surveillance  and  should  address  the  specific 
concerns of consumers, SMEs and other businesses. Market surveillance authorities could be 
included, and also where appropriate, their colleagues in third countries. 

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4. 

IMPROVING SUPPLY CHAIN SUPERVISION 

Market  surveillance  is  the  responsibility  of  the  relevant  national  market  surveillance 
authorities.  However,  all  parties  in  the  supply  chain,  including  businesses  and  consumers, 
have a role to play. In addition, it is clear that in an EU-wide market cross-border cooperation 
and coordination with stakeholders is in constant need of strengthening. 

4.1. 

Focus on the supply chain 

The  development  of  the  single  market,  the  growing  number  of  types  of  products,  the 
increasing  technical  complexity  of  products  and  the  corresponding  blurring  of  boundaries 
between  product  categories,  pushes  the  surveillance  of  the  European  single  market  for 
products  towards  a  system  that  is  more  targeted  on  the  different  businesses  in  the  supply 
chain. In addition, the actors in the supply chain change and evolve, and their responsibilities 
vis-à-vis compliance controls and the safety of their products are often not clearly identified.  

Action 14: Improve product traceability 

The Commission will speed up its work to improve product traceability in the supply chain. It 
will  evaluate  the  recommendations  of  the  "Expert  Group  on  Product  Traceability"  with  the 
objective  of  improving  the  quality  and  availability  of  traceability  information  in  the  supply 
chain.  Up-to-date  guidance  will  be  provided  by  the  Commission,  after  consulting  Member 
States, taking into account the specific needs and interests of SMEs. 

Action 15: Compliance scheme operated by Market Surveillance Authorities 

The Commission will study the option of developing compliance schemes operated by market 
surveillance authorities, and integrating them into existing trade-facilitating schemes such as 
the Authorised Economic Operator. 

4.2. 

Looking further ahead at other categories of products 

Within the Union, products are traditionally subdivided into 'consumer' or 'professional', and 
'harmonised'  or  'non-harmonised'  categories.  While  the  safety  aspects  of  a  wide  range  of 
consumer  and  professional  products  are  harmonised  by  European  legislation,  the  safety 
requirements for consumer products that are not yet harmonised will be further strengthened 
by the proposal for a Consumer Products Safety Regulation. Yet, a number of 'professional, 
non-harmonised  products'  are  not  subject  to  European  rules  on  safety  or  other  essential 
requirements.  The  absence  of  rules  for  these  products  complicates  European  market 
surveillance activities. 

Action 16: Professional non-harmonised products - Inquiry on safety issues  

The  Commission  will  start  an  in-depth  inquiry  into  the  safety  aspects  of  professional,  non-
harmonised products, i.e. products that are not subject to European rules on safety or other 
essential requirements, and the corresponding difficulties for market surveillance authorities. 

5. 

MORE AND BETTER CONTROLS ON PRODUCTS ENTERING THE UNION 

Controls  of  products  entering  the  EU  market  must  be  properly  implemented,  including  the 
possibility  to  render  inoperable  or  destroy  dangerous  goods.  Controls  at  borders  should  be 

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organised  and  performed  in  the  same  way  as  within  the  EU,  since  checks  performed  at  the 
first point of entry or during the declaration of goods for release for free circulation prevent 
the  spread  of  dangerous  products  on  the  EU  market.  The  high  level  of  security  and  safety 
must be ensured whenever the control takes place. 

The control of products manufactured in third countries pose specific enforcement problems 
due  to  the  immense  quantity  and  diversity  of  imported  goods.  They  imply  the  need  for  a 
proper  cooperation  between  Customs  and  the  responsible  market  surveillance  authorities  of 
Member  States.  Customs  can  target  risky  consignments  and  carry  out  the  documentary  and 
physical  checks  prior  to  their  release  for  free  circulation  on  the  EU  market  to  identify 
potentially unsafe or non-compliant goods but the final decision on the safety and compliance 
of goods is to be taken by market surveillance authorities.  

5.1. 

Implementation  of  the  Guidelines  for  import  controls  in  the  area  of  product 
safety and compliance and further coordination and cooperation 

Controls of products entering the EU market require the involvement of customs authorities, 
the only service that has a complete overview of trade flows across the EU external borders. 
In  order  to  provide  the  necessary  knowledge  to  the  authorities  and  to  facilitate  the 
implementation of Regulation (EC) No 765/2008, the Commission, together with the Member 
States, issued in June 2011 'Guidelines for import controls in the area of product safety and 
compliance'.  The  Guidelines  are  intended  as  an  instrument  to  assist  customs  in  performing 
controls  on  product  safety  and  compliance  and  to  improve  cooperation  between  customs 
authorities and market surveillance authorities. Actions envisaged include data collection on 
control results and joint enforcement actions. 

Action 17: Support for implementation of the Guidelines in the Member States  

The  expert  team  from  the  Commission  and  the  Member  States  will  complete  visits  to  all 
Member  States  in  2015.  These  visits  are  intended  to  facilitate  the  implementation  of  the 
Guidelines  by  customs  and  market  surveillance  authorities.  They  will  also  allow  customs 
authorities  to  have  an  overview  of  the  market  surveillance  objectives  and  organisation  at 
national and EU levels, with specific reference to the treatment of SMEs. 

Action 18: Improve the efficiency of border safety and compliance controls 

In the context of the Commission's 'Customs 2013 Expert Working Group', continued support 
will  be  provided  for  coordination,  shared  activities,  good  cooperation  and  exchange  of 
information  to  increase  the  efficiency  of  border  safety  and  compliance  controls  This  should 
ensure better results with fewer resources. It will also contribute to ensuring consistent and 
efficient implementation and enforcement of EU provisions. 

Action  19:  Mapping  the  differences  in  dealing  with  safety  and  compliance  controls  for 
products entering the Union 

The  organisation  and  technical  support  for  product  safety  and  compliance  controls  at  the 
points of entry in the Union could vary, amongst others due to the differences in volumes and 
types of traffic. The Commission will check and map the situation. 

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5.2. 

A common risk approach to customs controls in the area of product safety and 
compliance 

Appropriate  risk  management  is  a  prerequisite  for  efficient  import  controls.  This  has  been 
highlighted in the Communication from the Commission on Customs Risk Management and 
Security of the Supply Chain12 which also covers control aspects related to product safety and 
compliance requirements. 

Customs  and  market  surveillance  authorities  will  work  more  closely  in  order  to  develop 
common  risk  criteria  and  specific  risk  profiles,  and  will  identify  where  and  how  to  get  the 
information  that  would  enable  customs  to  better  target  the  consignments  that  pose  a  safety 
risk.  

Action  20:  Development  of  a  common  risk  approach  to  customs  product  safety  and 
compliance controls 

The  Commission,  together  with  the  Member  States,  will  set  up  a  common  approach  for 
managing risk at the point of import.  

6. 

CONCLUSION AND NEXT STEPS 

As well as setting priorities for the coming three years, the Commission is already considering 
steps  to  be  taken  beyond  2015.  The  single  market  and  market  surveillance  should  be 
reoriented and energised to serve the objectives of the Europe 2020 Strategy, which sets out 
objectives  for  the  next  10  years.  Market  surveillance  contributes  to  the  objectives  of 
protecting health and safety and eliminating unfair competition. 

By  the  end  of  2015,  the  Commission  will  look  into  the  need  to  launch  a  new  multi-annual 
market  surveillance  plan  which  could  draw  inspiration  and  benefit  from  the  experiences 
triggered  by  the  implementation  of  EU  programmes  for  consumers  and  customs.  The 
Commission will also consult all concerned parties about the next steps to take. 

Citizens and businesses will not be able to reap the full benefits of Union rules on industrial 
and  consumer  products  through  the  implementation  of  this  multi-annual  action  plan  alone. 
This  set  of  actions  is  just  the  first  in  a  series  of  efforts  being  made  to  strenghten  market 
surveillance in the Union. But this plan is a major step in the right direction for Union market 
surveillance. 

Consequently, the Commission: 

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• 

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calls  upon  the  European  Parliament,  the  Council  and  the  European  Economic  and 
Social Committee to support this plan; 

will  work  with  the  Member  States  and  stakeholders  to  facilitate  the  swift 
implementation of the plan; 

calls  upon  all  relevant  national  authorities  including  customs  and  stakeholders  to 
ensure that this plan is implemented on time. 

COM(2012)793 final 

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