ORGANISATION MONDIALE
DU COMMERCEG/SPS/GEN/274
7 août 2001
(01-3904)
Comité des mesures sanitaires et phytosanitaires
RAPPORT DE L'ORGANISATION MONDIALE DE LA SANTÉ (OMS)
Réunion des 10-11 juillet 2001
A. ACTIVITÉS MENÉES CONJOINTEMENT AVEC LA FAO ET L'OIE
1. Comité mixte FAO/OMS d'experts des additifs alimentaires (JECFA)
Au cours de la période 1998-2001, le JECFA a tenu huit réunions:
• Cinquantième réunion, Rome (Italie), 17-26 février 1998.  Médicaments vétérinaires
• Cinquante et unième réunion, Genève (Suisse), 9-18 juin 1998.  Additifs alimentaires
• Cinquante-deuxième réunion, Rome (Italie), 2-11 février 1999.  Résidus de
médicaments vétérinaires
• Cinquante-troisième réunion, Rome (Italie), 1er-10 juin 1999.  Additifs alimentaires et
contaminants
• Cinquante-quatrième réunion, Genève (Suisse), 15-24 février 2000.  Résidus de
médicaments vétérinaires
• Cinquante-cinquième réunion, Genève (Suisse), 6-15 juin 2000.  Additifs alimentaires
et contaminants
• Cinquante-sixième réunion, Genève (Suisse), 6-15 février 2001.  Mycotoxines
• Cinquante-septième réunion, Rome (Italie), 5-14 juin 2001.  Additifs alimentaires et
contaminants
a) Évaluation des additifs alimentaires et des contaminants
Les cinquante et unième, cinquante-troisième,  cinquante-cinquième et cinquante-septième
réunions du JECFA ont été consacrées à l'évaluation de près de 740 additifs alimentaires, dont
680 aromatisants.  Les cinquante-troisième , cinquante-cinquième, cinquante-sixième et
cinquante-septième réunions ont évalué 13 contaminants:  le plomb, le méthylmercure, le zéaralénone,
le cadmium, l'étain, l'aflatoxine M 1, les fumonisines, l'ochratoxine-A, le déoxynivalénol, les
toxines T-2 et HT-2, le 3-chloro-1,2-propanediol , le 1,3-dichloro-2-propranol et les dioxines.
Les principes régissant l'évaluation des additifs alimentaires et des contaminants, qui figurent
dans les sections consacrées aux considérations générales des rapports publiés dans la série Rapports
techniques OMS, sont constamment mis à jour.  Des monographies toxicologiques sont publiées dansla série OMS sur les additifs alimentaires, et les spécifications relatives à l'identité et à la pureté des
additifs alimentaires sont publiées dans des additifs à l'étude FAO Alimentation et nutrition n° 52.
À sa cinquante-troisième session, le Comité a examiné un Rapport d'experts de l'OMS relatif
aux critères scientifiques justifiant l'inclusion de certains aliments et produits alimentaires dans la listedes allergènes alimentaires, ou leur exclusion de cette liste, à la demande du Comité du Codex sur
l'étiquetage des aliments et a étudié l'allergénicité des huiles d'arachide et de soja.G/SPS/GEN/274
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b) Évaluation des médicaments vétérinaires
Les résidus de certains médicaments vétérinaires présents dans les aliments ont été évalués
lors des cinquantième, cinquante-deuxième et cinquante-quatrième réunions du JECFA.  Un
antagoniste béta-adrénergique, 7 antihelmintiques, 15 antimicrobiens, 3 antiprotozoaires,1 glucocorticoïde, 8 insecticides, 6 substances destinées à favoriser la production animale et
2 tranquillisants ont été examinés.  Des doses journalières admissibles (DJA) ont été établies à ces
réunions, ou l'avaient été à des réunions précédentes, et un grand nombre de limites maximales de
résidus (LMR) ont été recommandées pour la plupart de ces médicaments vétérinaires.
Le JECFA a sensiblement progressé dans l'harmonisation de ses procédures avec celles de la
réunion conjointe FAO/OMS sur les résidus de pesticides (JMPR) pour ce qui concerne l'évaluationdes substances utilisées soit comme pesticides, soit comme médicaments vétérinaires et, notamment,
les définitions nouvelles ou révisées relatives à la matrice ou au produit auquel s'applique une LMR.
Les rapports sont publiés dans la série des Rapports techniques de l'OMS.  Les monographies
toxicologiques sont publiées dans la série OMS consacrée aux additifs alimentaires, et lesmonographies sur les résidus sont publiées en additifs au n° 41 de la série FAO Alimentation et
nutrition.
2. Réunion conjointe FAO/OMS sur les résidus de pesticides (JMPR)
Au cours de la période 1998-2000, la JMPR s'est tenue trois fois:
• JMPR de 1998, Rome (Italie), 21-30 septembre 1998
• JMPR de 1999, Rome (Italie), 20-29 septembre 1999
• JMPR de 2000, Genève (Suisse), 20-29 septembre 2000
La JMPR de 1998 a évalué 28 pesticides, dont un nouveau composé, et a procédé à
18 réévaluations complètes concernant la toxicologie ou les résidus ou les deux, dans le cadre du
Programme d'examen périodique du Comité du Codex sur les résidus de pesticides (CCPR).  LaJMPR de 1999 a évalué 30 pesticides, dont un co mposé nouveau, et en a réévalué complètement 12.
La JMPR de 2000 a évalué 20 pesticides, dont un composé nouveau, et dix composés ont été
réévalués.  La Réunion conjointe de 2000 a également évalué un contaminant, le DDT.
La JMPR de 2001 se tiendra à Genève (Suisse) du 16 au 25 septembre.  Trois pesticides
seront évalués pour la première fois et dix réévaluations complètes seront effectuées.
Atelier conjoint FAO/OMS sur les méthodes d'évalua tion de l'exposition aux contaminants et toxines
présents dans les aliments
Cet atelier, qui s'est tenu les 7 et 8 juin 2000 à Genève (Suisse), avait pour but de réunir des
experts des évaluations à l'exposition et des personnes ayant une expérience des procédures de
normalisation du Codex.  L'atelier a produit une publication intitulée "Méthode d'évaluation de
l'exposition aux contaminants et toxines présen ts dans les aliments" (WHO/SDE/THG/FOS/00.5), qui
décrit les principales étapes d'une méthode permettant d'effectuer des évaluations de l'exposition.
Deuxième atelier international portant sur l'ensemble de l'alimentation
Cet atelier se tiendra du 12 au 23 novembre 2001 à Brisbane (Australie) et aura pour objet de
mettre au point les procédures d'études portant sur l'alimentation totale dans les États Membres, de
former du personnel et d'encourager la participation à de telles études.  Les États Membres quiG/SPS/GEN/274
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entreprendront ces activités obtiendront les données qui sont nécessaires pour participer efficacement
aux procédures de normalisation du Codex, ainsi que pour évaluer, au plan national, les risques liés à
la présence de substances chimiques dans les aliments.  L'évaluation de ces risques fournit les moyens
d'établir des priorités entre les risques liés à l'alimentation et de gérer efficacement ces risques.
L'atelier se tiendra en collaboration avec un atelier de la FAO sur la composition des aliments etl'évaluation des nutriments, qui se tiendra également à Brisbane.
Réunion des points de contact du Système mondial de surveillance continue de l'environnement et du
Programme de surveillance et d'évaluation de la contamination des denrées alimentaires
(GEMS/Food-Euro)
Cette réunion, qui se tiendra du 10 au 12 juillet 2001 à Berlin (Allemagne), examinera la
question de la reprise de la collecte de données et de la coopération dans le domaine de la surveillance
de la contamination des denrées alimentaires.  Un stage de formation en matière de transmission
électronique des données se tiendra immédiatement après l'atelier.
3. Évaluation du risque microbiologique
L'analyse des dangers microbiologiques dans les aliments a été définie comme un domaine de
travail prioritaire pour la Commission du Codex Alimentarius, et l'évaluation du risque
microbiologique est une priorité pour l'OMS et pour la FAO.  En conséquence, la FAO et l'OMS ont
lancé conjointement un programme de travail qui a pour but de fournir à leurs pays membres et à la
Commission du Codex Alimentarius l'avis de spécialistes en matière d'évaluation du risquemicrobiologique dans les aliments.  Pour mettre en œuvre ce programme de travail, la FAO et l'OMS
ont convoqué les grandes réunions ci-après:
Consultations mixtes FAO/OMS d'experts sur l'évaluation du risque microbiologique dans les
aliments
Consultation d'experts de mars 1999La FAO et l'OMS ont convoqué cette consultation qui constituait une nouvelle étape dans
l'élaboration d'une stratégie internationale d'évaluation du risque microbiologique dans les aliments et
des mécanismes nécessaires pour l'étayer.
Première consultation d'experts, juillet 2000
L'évaluation des risques liés à la présence de Salmonella  spp. dans les œufs et les poulets, et
de Listeria monocytogenes  dans les aliments prêts à consommer a commencé en janvier 2000 suivant
un plan s'étalant sur deux ans.  En juillet 2000, une consultation d'experts a été convoquée pourexaminer les composantes de l'évaluation du risque que sont l'identification des dangers, l'évaluation
de l'exposition et la caractérisation des dangers (document FAO Alimentation et nutrition n° 71.
Consultation mixte FAO/OMS d'experts de l'évaluation du risque microbiologique dans les denrées
alimentaires , 2000).  La Consultation d'experts a formulé des recommandations concernant
l'amélioration des documents, les lacunes identifiées dans les connaissances, et les données àrassembler pour achever le travail d'évaluation des risques;  elle a établi une liste des questions à
porter à l'attention du Comité du Codex sur l'hygiène alimentaire (CCFH).  Le rapport de la
consultation a été présenté au Comité du Codex sur l'hygiène alimentaire à sa 33
ème session pour que
celui-ci fournisse des indications complémentaires quant à la future orientation de ce travail.  Lors des
délibérations qui ont suivi, le CCFH a soulevé un certain nombre de questions spécifiques concernantla gestion des risques liés aux combinaisons pathogènes-denrées qu'il souhaitait voir prises en compte
dans l'évaluation du risque (ALINORM 01/13A).G/SPS/GEN/274
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Deuxième consultation d'experts, avril 2001
La deuxième Consultation d'experts a examiné les documents techniques fournis par les
groupes de rédaction concernant la caractérisation des dangers liés à Salmonella  spp. dans les œufs et
les poulets, et à Listeria monocytogenes  dans les aliments prêts à consommer, dans les buts suivants:
• Examiner de manière critique les évaluations des risques, en prêtant une attention
particulière aux hypothèses sur lesquelles reposent ces évaluations.
• Utiliser les évaluations des risques liés à Salmonella  spp. dans les œufs et les poulets,
et à Listeria monocytogenes  dans les aliments prêts à consommer, pour apporter une
réponse scientifique aux questions spécifiques posées concernant la gestion du risque
par le Comité du Codex sur l'hygiène alimentaire à sa 33ème session et fournir des
indications quant à la manière dont celui-ci pourrait exploiter ces résultats.
• Fournir des avis et des orientations concernant la manière dont les pays membres de
la FAO et de l'OMS peuvent adapter à leur situation nationale les évaluations
FAO/OMS des risques liés à Salmonella  spp. dans les œufs et les poulets, et à
Listeria monocytogenes  dans les aliments prêts à consommer.
Le rapport contient un résumé des caractérisations des dangers, répond aux questions posées
par le Comité du Codex sur l'hygiène alimentaire, et formule des recommandations concernant
l'adaptation de ces évaluations des risques au travail effectué par les pays membres.  Ce rapport sera
présenté au Comité du Codex sur l'hygiène alimentaire, à sa 34ème session en octobre 2001.  Après un
examen critique de confrères et du public, la FAO et l'OMS publieront les documents complets desévaluations des risques ainsi que des interprétations succinctes des évaluations des risques à l'usage de
leurs pays membres et du CAC.
Troisième consultation d'experts, juillet 2001
En mars 2001, la FAO et l'OMS ont entrepris un travail d'évaluation des risques liés à deux
autres combinaisons pathogènes-denrées identifiées comme prioritaires par le Comité du Codex sur
l'hygiène alimentaire, à savoir Vibrio  spp. dans les produits de la mer et Campylobacter  spp. dans les
poulets.  Deux groupes de rédaction ad hoc  ont été formés pour examiner l'information pertinente
disponible concernant les combinaisons pathogènes-denrées susmentionnées.  Ceux-ci préparentactuellement la documentation relative aux deux étapes de l'évaluation des risques relatives à
l'évaluation de l'exposition et à la caractérisation des dangers.  Ces documents seront examinés et
évalués par la Consultation mixte d'experts de juillet 2001.
En octobre 2001, le rapport préliminaire de cette Consultation mixte FAO/OMS sur
l'évaluation du risque microbiologique dans les aliments sera remis au Comité du Codex sur l'hygiène
alimentaire.  Il traitera de l'évaluation de l'exposition et de la caractérisation des dangers pour les deux
combinaisons pathogènes-denrées.  On attend du Comité du Codex sur l'hygiène alimentaire qu'il
définisse de manière plus précise les questions sur lesquelles le groupe de rédaction devra poursuivre
son travail.  Un rapport final sera remis en 2002.
4. Consultations mixtes FAO/OMS d'experts des aliments dérivés des biotechnologies
En 1999, conscientes de l'intérêt croissant que leurs membres portaient à cette question, la
FAO et l'OMS ont décidé d'or ganiser, pour appuyer les travaux du Groupe intergouvernemental
spécial du Codex sur les aliments dérivés des biotechnologies, une série de consultations d'experts surG/SPS/GEN/274
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la sécurité sanitaire des aliments génétiquement modifiés.  La FAO et l'OMS ont organisé deux
Consultations mixtes FAO/OMS d'experts.
La première Consultation s'est tenue à Genève du 29 mai au 2 juin 2000 et a été consacrée
aux principes scientifiques applicables à l'évaluation de la sécurité sanitaire et des aspectsnutritionnels des aliments génétiquement modifiés;  elle s'est plus particulièrement intéressée à la
notion d'équivalence substantielle.
1  Elle a également élaboré des réponses aux questions spécifiques
posées par l'Équipe spéciale sur les aliments dérivés des biotechnologies à sa première session.
La deuxième Consultation2 s'est tenue à Rome du 22 au 25 janvier 2001 et a porté en
particulier sur la question de l'allergénicité des aliments génétiquement modifiés.  Elle a modifié
l'arbre de décisions utilisé pour l'évaluation du potentiel allergisant des aliments dérivés de plantescultivées génétiquement modifiées, qui avait été a dopté par la Consultation mixte FAO/OMS de 2000.
Les résultats de ces deux consultations ont été dûment pris en compte dans le travail de rédaction de
l'Équipe spéciale.
Durant sa seconde session tenue à Chiba (Japon) en mars 2001, l'Équipe spéciale a examiné
deux propositions, dont un projet de principes applicables à l'analyse des risques liés aux aliments
dérivés des biotechnologies modernes, et un projet de directives pour la conduite de l'évaluation de la
sécurité sanitaire des aliments dérivés de végétaux à ADN recombiné.  À cette même session, il a été
décidé que, sous réserve de l'approbation de la Commission du Codex Alimentarius à sa 24
ème session,
l'Équipe spéciale élargirait ses travaux en comm ençant à rédiger un avant-projet de directives sur
l'évaluation de la salubrité des micro-organismes génétiquement modifiés dans les aliments et a créé
un nouveau groupe de travail chargé d'établir un projet de document.  Il a été convenu que la FAO et
l'OMS convoqueraient une troisième Consultation mixte d'experts pour examiner les aspects
scientifiques de l'évaluation de la salubrité de s micro-organismes génétiquement modifiés.  La
troisième Consultation se tiendra du 24 au 28 septembre 2001 à Genève.
5. Consultation FAO/OMS sur les orientations relatives au renforcement des systèmes
nationaux de contrôle des denrées alimentaires
La réunion s'est tenue les 27-28 juin 2001 à Genève.  Elle a examiné le document sur l'aide au
développement des systèmes de contrôle des denrées alimentaires dans les pays en développement.
Le projet de document résumé produit par la réunion sera diffusé pour observations en vue de
procéder, vers le mois d'octobre, à sa finalisation.
6. Consultation technique mixte sur l'ESB:  santé publique, santé animale et échanges
commerciaux
Une note sur la réunion de quatre jours, qui s'est tenue à Paris du 11 au 14 juin 2001, a été
envoyée séparément par l'OIE/FAO/OMS (G/SPS/GEN/260).
                                                     
1 OMS (2000):  "Safety aspects of genetically modified foods of plant origin", Rapport d'une
Consultation mixte FAO/OMS d'experts sur les aliments dérivés des biotechnologies.
2 FAO (2001):  "Evaluation of Allergenicity of Genetically Modified Foods", Rapport d'une
Consultation mixte FAO/OMS d'experts sur les aliments dérivés des biotechnologies.G/SPS/GEN/274
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B. ACTIVITÉS DE L 'OMS SEULE
1. Réunion OMS de planification stratégique en matière de sécurité des aliments
En mai 2000, la 53ème Assemblée mondiale de la santé a reconnu que la sécurité des aliments
constituait une question prioritaire pour l'OMS et a défini les travaux à réaliser à l'avenir en la matière,
mettant ainsi en évidence les préoccupations mondiales relatives à la sécurité des aliments etl'importance de cette dernière en tant que fonction essentielle de la santé publique.  Dans sa résolution
sur la sécurité des aliments (WHA 53.15), elle a demandé au Directeur général de convoquer une
réunion de planification stratégique, à laquelle participeraient des experts de la sécurité des aliments,
pour permettre à l'Organisation de mettre au point une stratégie OMS en matière de salubrité des
aliments.  Conformément à cette résolution, l'OMS a convoqué une réunion de planification
stratégique qui s'est tenue en février 2001 pour examiner les nouveaux problèmes et défis qui se
posent à l'échelle mondiale en matière de sécurité sanitaire des aliments.  Sur la base de ces travaux etde ceux d'autres consultations, l'OMS a établi un projet de document intitulé "Global WHO Food
Safety Strategy" (Annexe) qui a été soumis, en mai 2001, au Conseil exécutif de l'OMS
(108
ème session).  Une nouvelle consultation aura lieu avec les États membres et autres parties
intéressées, et le document de la stratégie sera définitivement mis au point vers la fin de l'année, en
vue de son adoption à la 55ème Assemblée mondiale de la santé en mai 2002.
Une stratégie mondiale de l'OMS en matière de salubrité des aliments:  synopsis
Le projet de document de la stratégie s'efforce d'identifier des orientations qui, prises à
l'échelle mondiale, permettraient à l'OMS d'atteindre son objectif de réduction des toxi-infectionsalimentaires.  Il est axé sur les concepts de prise en considération du risque d'origine alimentaire pour
la santé humaine tout au long de la chaîne de pr oduction des aliments, en prenant acte de ce que toutes
les régions du globe ont besoin de systèmes de production agricole durables.
Objectif
Réduire la charge sanitaire des toxi-infections alimentaires.
Approches
• Prévenir toute exposition à des niveaux inacceptables d'agents microbiologiques et de
substances chimiques dans les aliments dans toute la chaîne de production.
• Introduire rigueur scientifique, objectivité et équilibre dans les initiatives concernant
la sécurité sanitaire des aliments.
• Adopter une approche novatrice pour résoudre les problèmes et accepter le défi du
changement.
• Recommander et favoriser le développement de systèmes intégrés, durables, fondés
sur le risque de sécurité sanitaire des aliments.
• En coopération avec d'autres secteurs et partenaires, évaluer efficacement et
rapidement les risques, communiquer sur les risques et gérer les risques liés à
l'alimentation.G/SPS/GEN/274
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La stratégie prévoit les approches ci-après:
I. renforcer les systèmes de surveillance des toxi-infections alimentaires;II. améliorer les évaluations des risques;III. mettre au point des méthodes permettant d'évaluer l'innocuité des produits des
nouvelles technologies;
IV. renforcer le rôle scientifique et de santé publique de l'OMS auprès du Codex;V. renforcer la communication et les campagnes de sensibilisation concernant les
risques;
VI. améliorer la coopération internationale et nationale;VII. renforcer la mise en place de capacités dans les pays en développement.
2. Résistance antimicrobienne
a) Consultation OMS sur les principes généraux du confinement de la résistance
antimicrobienne dans les animaux destinés à la consommation
Cette consultation s'est tenue du 5 au 9 juin 2000 à Genève avec la participation de la FAO et
de l'OIE.  Tout en reconnaissant que le traitement antimicrobien des animaux malades est
actuellement une nécessité, elle s'est surtout concentrée sur les aspects de santé publique et humaine
de l'utilisation de substances antimicrobiennes chez les animaux destinés à la consommation.  Les
principes généraux de l'OMS concernant l'endiguement de la résistance antimicrobienne dans les
animaux destinés à la consommation constituent un élément important de la Stratégie mondiale del'OMS dans ce domaine.  Cette stratégie vise à identifier les facteurs-clés associés à l'apparition d'une
résistance antimicrobienne à l'égard de maladies humaines, et à élaborer des modalités d'application
efficaces pour réduire le développement de cette résistance.  Ces interventions s'adresseront à la
communauté en général, aux prescripteurs et aux hôpitaux, et consisteront notamment à mettre en
place des programmes de surveillance de la consommation des substances antimicrobiennes et de la
résistance, à réduire les utilisations non nécessaires de substances antimicrobiennes chez les animaux,
à conduire de nouveaux travaux de recherche-développement et à coordonner les travaux desorganisations internationales.
b) Consultation OMS sur les méthodes et principes de surveillance de l'utilisation de substances
antimicrobiennes dans la production des animaux d'élevage en vue de protéger la santé des
personnes
Conformément aux recommandations issues de la Consultation OMS sur l'impact médical de
l'utilisation de substances antimicrobiennes chez les animaux d'élevage (Berlin, octobre 1997), un
grand nombre d'organismes internationaux ont considéré que la surveillance de la consommation de
substances antimicrobiennes par les animaux d'élevage était une condition préalable indispensable
pour déterminer les facteurs de risque d'apparition d'une résistance à ces substances chez les bactériesresponsables des zoonoses et évaluer l'intervention de santé publique nécessaire pour limiter ce risque.
Les données disponibles sur la consommation de substances antimicrobiennes restent
cependant insuffisantes, très peu de progrès ayant ét é réalisés dans la surveillance de l'utilisation de
ces substances aux niveaux national et international.  La Consultation susmentionnée porteraessentiellement sur cette question.  Elle se tiendra à Oslo (Norvège) du 10 au 13 septembre 2001.G/SPS/GEN/274
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Les objectifs de cette consultation sont les suivants:  élaborer des modèles de stratégies
nationales et internationales pour la surveillance aux niveaux national et international de l'utilisation
des substances antimicrobiennes chez les animaux d'élevage afin de protéger la santé des personnes, et
formuler des recommandations pour soutenir les gouvernements, les administrations nationales,l'industrie pharmaceutique, les organisations internationales et autres parties prenantes dans leurs
efforts visant à mettre sur pied des programmes nationaux de surveillance de l'utilisation de ces
substances.
Les participants à la Consultation examineront les données existantes sur la consommation de
substances antimicrobiennes à usage autre qu'humain, sur les expériences nationales et sur les
méthodes utilisées pour mettre en place des systèmes de surveillance de l'utilisation de ces substances.
Le Centre collaborateur OMS pour la méthodologie des statistiques sur les médicaments et
des représentants de l'industrie pharmaceutique prendront part à la Consultation.  Des
recommandations et/ou des directives susceptibles d'aider les pays dans leurs efforts visant à mettre
sur pied des programmes nationaux de surveillance seront formulées.
3. Consultation OMS sur la sécurité des aliments avant la récolte
Une Consultation OMS sur la sécurité des aliments avant la récolte, à laquelle ont participé
l'OIE et la FAO, s'est tenue à Berlin (Allemagne), du 26 au 28 mars 2001.  Elle a porté principalement
sur les activités et les mesures relatives à la production d'animaux d'élevage qui contribuent à protégerla santé des personnes des maladies transmises aux humains par l'intermédiaire des produits
alimentaires provenant de ces animaux d'élevage.  Il y a été question, en particulier, de la viande.  La
Consultation faisait partie des activités de l'OMS visant à mettre au point des systèmes durables et
intégrés de sécurité des aliments afin de réduire les risques pour la santé publique dans toute la chaîne
alimentaire, depuis le producteur primaire jusqu'au consommateur.  Outre les participants des milieuxvétérinaire, médical et universitaire, diverses organisations et institutions internationales qui ont des
intérêts et mènent des activités importantes dans le domaine de la sécurité des aliments avant la
récolte ont participé à la Consultation.  Des recommandations ont été finalisées.
4. Révision du Règlement sanitaire international
En janvier de cette année, le Conseil exécutif de l'Assemblée mondiale de la santé a été
informé des changements envisagés et de l'orientation que l'on souhaitait donner à la révision duRèglement sanitaire international.  Le Conseil a d onné son accord de principe quant à l'orientation
proposée par le Secrétariat.  À l'évidence, un travail considérable sera nécessaire pour passer des
nouveaux concepts à un texte réglementaire, mais l'OMS peut dès à présent commencer à mettre à
l'épreuve les nouvelles approches et les nouveaux protocoles, en collaboration directe avec les experts
des États Membres qui ont accepté de faire partie de  l'équipe de révision élargie.  Leur contribution
sera essentielle étant donné qu'ils représentent les utilisateurs finals du Règlement et que ce sont eux
qui subiront le plus directement les effets de s changements.  Bien entendu, d'autres organismes
internationaux sont parties prenantes à ces travaux.  C'est notamment le cas du Comité SPS et de
certaines institutions des Nations Unies telles que l'Organisation de l'aviation civile internationale et
l'Organisation maritime internationale.  C'est la raison pour laquelle l'OMS souhaite tenir le Comitéinformé de la progression de ses travaux et nous demanderons l'avis des membres du Comité dans le
cadre du processus d'essai et de vérification.
Compte tenu de l'ampleur des consultations nécessaires, l'échéance révisée prévue pour la
présentation du projet final de Règlement sanitaire international à l'Assemblée mondiale de la santéest l'année 2004.  Le Règlement constituera le cadre juridique du concept de sécurité sanitaire
mondiale et fait partie intégrante de cette initiative de plus vaste portée.  Lors de leurs prochainesG/SPS/GEN/274
Page 9
réunions, le Conseil exécutif et l'Assemblée mondiale de la santé s'efforceront d'arriver à un accord
provisoire sur les aspects fondamentaux du Règlement et une série d'avant-projets sera établie à
l'intention des États Membres, pour examen, bien avant la présentation du projet final.  D'autres
rapports seront présentés au Comité SPS à mesure que ces aspects auront été mis à l'épreuve et
clarifiés.
POINTS DE CONTACT À L 'OMS
Dr Jorgen Schlundt
Coordonnateur, Programme sécurité des aliments
Organisation mondiale de la santé
Courrier électronique:  schlundtj@who.intTéléphone: (41-22) 791 3445
Télécopie: (41-22) 791 4807
Adresse:  20 avenue Appia, CH-1211, Genève 27 (Suisse)
M. William Cocksedge (pour ce qui a trait au Règlement sanitaire international)
Projet du Règlement sanitaire international
Département des maladies transmissibles:  surveillance et action
Courrier électronique:  cocksedgew@who.int
Téléphone: (41-22) 791 2729
Télécopie: (41-22) 791 4198Adresse:  20 avenue Appia, CH-1211, Genève 27 (Suisse)G/SPS/GEN/274
Page 10
ANNEXE*
A Global WHO
Food Safety Strategy
Safer food for better health
                                                     
* En anglais seulement.G/SPS/GEN/274
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Table of Contents
FOREWORD: ............................................................................................................................... ........12
FOOD SAFETY : A PUBLIC HEALTH PRIORITY .........................................................................................12
WHY IS FOOD SAFETY AN ESSENTIAL PUBLIC HEALTH ISSUE? ........................................13
NEW CHALLENGES TO FOOD SAFETY ....................................................................................................13
INTERNATIONAL FOOD STANDARDS BASED ON HEALTH CONSIDERATIONS ........................................14
MAJOR ISSUES IN FOOD SAFETY .................................................................................................14
MICROBIOLOGICAL HAZARDS ...............................................................................................................14
CHEMICAL HAZARDS .............................................................................................................................16
SURVEILLANCE ............................................................................................................................... .......16
NEW TECHNOLOGIES .............................................................................................................................17
CAPACITY BUILDING ..............................................................................................................................1 7
THE ROLE OF WHO IN FOOD SAFETY .........................................................................................18
WHO' S MANDATE ............................................................................................................................... ...18
WHO F OOD SAFETY INITIATIVES ..........................................................................................................18
WORLD HEALTH ASSEMBLY RESOLUTION ............................................................................................19
WHO'S FOOD SAFETY STRATEGY .................................................................................................19
APPROACH I .............................................................................................................................. .............21
Strengthening Surveillance Systems of Food-borne Diseases ..........................................................21
APPROACH II ............................................................................................................................. .............22
Improving Risk Assessments ..............................................................................................................22
APPROACH III............................................................................................................................ .............23
Methods for Assessing the Safety and Risks of New Technologies ..................................................23
APPROACH IV............................................................................................................................. ............24
Enhancing the Scientific and Public Health Role of WHO in Codex ..............................................24
APPROACH V.............................................................................................................................. ............25
Enhancing Risk Communication and Advocacy ...............................................................................25
APPROACH VI............................................................................................................................. ............26
Improving International and National Cooperation ........................................................................26
APPROACH VII ............................................................................................................................ ...........27
Capacity Building ............................................................................................................................... .27G/SPS/GEN/274
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FOREWORD
FOOD SAFETY :  A PUBLIC HEALTH PRIORITY
Food-borne disease takes a major toll on health:  Thousands of millions of people fall ill and
many die as a result of eating unsafe food.  Deeply concerned by this, the Fifty-third World Health
Assembly adopted a resolution calling upon WHO and its Member States to recognize food safety asan essential public health function.  The Resolution also called on WHO to develop a Global Strategy
for reducing the burden of food-borne disease.
The availability of safe food improves the health of people and is a basic human right.  Safe
food contributes to health and productivity and provides an effective platform for development and
poverty alleviation.  People are becoming increasingly concerned about the health risks posed bymicrobial pathogens and potentially hazardous chemi cals in food.  Up to one third of the populations
of developed countries are affected by food-borne illness each year, and the problem is likely to be
even more widespread in developing countries.  The poor are the most susceptible to ill health.  Food
and waterborne diarrhoeal diseases, for example, are leading causes of illness and death in less
developed countries, killing about 2.2 million people, most of whom are children.  Diarrhoea is thecommonest symptom of food-borne illness, but other serious consequences include kidney and liver
failure, brain and neural disorders, and death.  Th e debilitating long-term complications of food-borne
disease include reactive arthritis and paralysis.
New ways for producing, distributing, preparing and eating food present new challenges for
ensuring its safety.  Food grown in one country can now be transported and consumed halfway across
the world.  People demand a wider variety of foods th an in the past; they want foods that are not in
season and often eat away from home.  Institutionalizing children in schools and childcare facilitiesand a growing number of elderly persons in hospitals and nursing homes means that food for many is
prepared by a few and can therefore be the source of major food-borne disease outbreaks.  Greater life
expectancy and increasing numbers of immunocompromised people mean a larger vulnerable
population for whom unsafe food is a serious threat.
WHO and its Member States have responded to these new challenges by recognizing food
safety as an essential public health function.  Food safety must be ensured along the entire food chain
by measures based on sound scientific information at both national and international levels.  WHO's
capacity to assess the risks posed by chemical and microbiological hazards and by new food-related
technologies must be enhanced. New methods are needed for evaluating and reducing the burden of
food-borne disease.  Food safety strategies can be implemented only by countries that have anadequate capacity to do so, and WHO will continue to assist Member States in establishing and
updating their systems for improving food safety.
WHO is committed to achieving better health for all people and recognizes food safety as a
global public health priority.  The food safety strategy described in this document defines a
strengthened role for WHO in food safety, outlines the approaches to be taken to reduce the risksposed by microbial and chemical hazards in food, and provides a roadmap for making the world's
food safer.  As food safety affects the entire community, all stakeholders must be involved.  Thus,
effective implementation of this strategy will require strengthened partnerships between international
organizations involved in food safety as well as between agencies at the national level.G/SPS/GEN/274
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WHY IS FOOD SAFETY AN ESSENTIAL PUBLIC HEALTH ISSUE?
Serious outbreaks of food-borne disease have occurred on virtually every continent in the past
decade, illustrating both the public health and social significance of these diseases.  Outbreaks are
likely, however, to be only the visible aspect of a much broader, more persistent problem.Food-borne diseases most seriously affect childre n, pregnant women, the elderly and people already
affected by other diseases.  Consumers everywhe re view food-borne disease outbreaks with ever-
increasing concern.
Food-borne diseases not only significantly affect people's health and well-being, but they also
have economic consequences for individuals, families, communities, businesses and countries.  They
also impose a substantial burden on health-care systems and markedly reduce economic productivity.
Poor people tend to live from day to day, and loss of income due to food-borne illness perpetuates thecycle of poverty.
NEW CHALLENGES TO FOOD SAFETY
The integration and consolidation of agricultural and food industries and the globalization of
the food trade are changing the patterns of food production and distribution.  These conditions arecreating an environment in which both known a nd new food-borne diseases can become prevalent.
Food and feed are distributed over far greater distances than before, creating the conditions necessary
for widespread outbreaks of food-borne illness.  In a recent crisis, more than 1500 farms in Europe
received dioxin-contaminated feed from a single source over a two-week period.  Food produced from
animals given this contaminated fodder found its wa y onto every continent within weeks.  The effects
of exposure to dioxin from this source on public health may become known only after years of
investigation.  The international spread of meat and bonemeal prepared from cattle affected by BSE
need not be described.  The full economic consequences of such incidents and the anxiety raised
among consumers are still being assessed.
Other factors account for the emergence of food safety as a public health issue.  The
increasing urbanization leads to greater requirements for transport, storage and preparation of food.
Increasing wealth, an urban lifestyle and sometimes a lack of facilities mean that people eat much of
their food away from home.  In developing countries, food is often prepared by street vendors.  In
developed countries, up to 50% of the food budget may be spent on food prepared outside the home.
All these changes lead to situations in which a single source of contamination can have global
consequences. Developing countries in particular are experiencing rapid changes in their health and
social environments, and the strains on their limited resources are compounded by expandingurbanization, increasing dependence on stored foods and insufficient access to safe water and
facilities for safe food preparation.
The globalization of the food trade offers many benefits to consumers, as it results in a wider
variety of high-quality foods that are accessible, affordable and safe, meeting consumer demand.  A
diversity of foods in a balanced diet improves nutritional status and health.  The global food tradeprovides opportunities for food-exporting countries to earn foreign exchange, which is indispensable
for the economic development of many countries and for improving the standard of living of many
people. However, these changes also present new challenges to safe food production and distribution
and have been shown to have widespread repercussions on health.
Food safety programmes are increasingly focusing on a farm-to-table approach as an effective
means of reducing food-borne hazards.  This holistic approach to the control of food-related risks
involves consideration of every step in the chain, from raw material to food consumption.  Hazards
can enter the food chain on the farm and can continue to be introduced or exacerbated at any point in
the chain until the food reaches the consumer.G/SPS/GEN/274
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Although significant progress has been made in many countries in making food safer,
thousands of millions of people become ill each year from eating contaminated food.  The public is
therefore increasingly aware of the risks posed by pathogenic microorganisms and chemical
substances in the food supply.  The introduction of new technologies, including genetic engineering
and irradiation, into this climate of concern about food safety is posing a special challenge.  Somenew technologies will increase agricultural production and make food safer, but their usefulness and
safety must be demonstrated if they are to be accepted by consumers.  Furthermore, the evaluation
must be open, transparent and be conducted using internationally agreed methods.
Until recently, most systems for regulating food safety were based on legal definitions of
unsafe food, enforcement programmes for the removal of unsafe food from the market and sanctions
for the responsible parties after the fact.  These traditional systems cannot respond to existing and
emerging challenges to food safety because they do not provide or stimulate a preventive  approach.
During the past decade, there was a transition to risk analysis based on better scientific knowledge of
food-borne illness and its causes.  This provides a preventive basis for regulatory measures for food
safety at both national and international levels.  The risk-based approach must be backed by
information on the most appropriate and effective means to control food-borne hazards.
INTERNATIONAL FOOD STANDARDS BASED ON HEALTH CONSIDERATIONS
The globalization of the food trade resulted in the introduction of international standards.  In
Resolution WHA 16.42 (May 1963), the Sixteent h World Health Assembly approved the
establishment of the Joint FAO/WHO Food Standa rds Programme, with the Joint FAO/WHO Codex
Alimentarius Commission (Codex) as its principal organ.  The objective of Codex is to develop
standards for food moving in international trade, in order to protect public health, and to ensure fair
trading practices.
The Commission has adopted many international standards on food safety.  Standards are
usually set in consultation with FAO and WHO, but recent international agreements have resulted in
inclusion of the World Trade Organization (WTO) as an interested party.  All health and safetyrequirements must be justifiable on the grounds of protecting public health and must be based on a
sound, scientific risk assessment.
The elaboration of health-based international standards and their adoption by Member States
will improve the safety of food in both the domestic market and at a global level. It can also facilitate
trade in food and contribute economically to development and to improving living standards in food-
exporting countries.  Effective participation in th e development of international standards to ensure
that they meet the needs of all Member States is vital to this process.
MAJOR ISSUES IN FOOD SAFETY
Food-borne illness can be caused by microbiological, chemical or physical hazards.  The
nature and extent of these risks are being elucidated by an increasing body of scientific data, althoughseveral areas of information gathering, such as the surveillance of food-borne illness, need to be
strengthened. There is also mounting concern about new technologies and especially the introduction
of genetically modified organisms into the food supply.  It is important to recognize that there will
always be inherent hazards in the food supply, which may have significant public health, social,
economic and political effects.
MICROBIOLOGICAL HAZARDS
Food-borne illness caused by microorganisms is a large and growing public health problem.
Most countries with systems for reporting cases of food-borne illness have documented significantG/SPS/GEN/274
Page 15
increases over the past few decades in the incidence of diseases caused by microorganisms in food,
including Salmonella , Campylobacter jejuni  and enterohaemorrhagic Escherichia coli .
One person in three in industrialized countries may be affected by food-borne illness each
year.  In the USA, some 76 million cases of food-borne illness, resulting in 325 000 hospitalizations
and 5000 deaths, are estimated to occur each year.  There are only limited data on the economicconsequences of food contamination and food-borne di sease.  In studies in the USA in 1995, it was
estimated that the annual cost of the 3.3–12 million cases of food-borne illness caused by seven
pathogens was US $6.5–35 billion.  The medical costs and the value of the lives lost during just five
food-borne outbreaks in England and Wales in 1996 were estimated at UK£ 300–700 million.  The
cost of the estimated 11 500 daily cases of food poisoning in Australia was calculated at
AU$ 2.6 billion annually.  Approximately 1.8 milli on children in developing countries (excluding
China) died from diarrhoeal disease in 1998, caused by microbiological agents.
The increased incidence of food-borne disease due to microbiological hazards is dependent on
a multiplicity of factors, all associated with our fast-changing world.  Demographic profiles are being
altered, with increasing proportions of people who are more susceptible to microorganisms in food.
Changes in farm practices, more extensive food distribution systems and the increasing preference for
meat and poultry in developing countries all have the potential to increase the incidence of food-borneillness.  Extensive food distribution systems raise the potential for rapid, widespread distribution of
contaminated food products.  Changes in food production are producing new types of food that may
harbour less common pathogens.  Intensive animal husbandry technologies, introduced to minimize
production costs, have led to the emergence of new zoonotic diseases, which affect humans.  Safe
disposal of manure from large-scale animal and pou ltry production facilities is a growing food safety
problem, as manure frequently contains pathogens.
Changes in eating patterns, such as a preference for fresh and minimally processed foods, the
increasingly longer interval between processing and consumption of foods and the increasing
prevalence of eating food prepared outside the home all contribute to the increased incidences of
food-borne illness ascribed to microbiological organisms.  The emergence of new pathogens andpathogens not previously associated with food is a major public health concern.  E. coli  O157:H7 was
identified for the first time in 1979 and has subsequently caused illness and deaths (especially among
children) owing to its presence in ground beef, unpasteurized apple cider, milk, lettuce, alfalfa sprouts
and drinking-water in several countries.  Salmonella typhimurium  DT104 has developed genetic
resistance to five commonly prescribed antibiotics and is a major concern in several countries because
of its rapid spread during the 1990s.
These changes in microbiological hazards in foods were recognized by WHA and Codex.
The 22
nd session of Codex and the 45th Codex Executive Committee requested the Food and
Agriculture Organization (FAO) of the United Na tions and the World Health Organization (WHO) to
convene an international expert advisory body similar to the JECFA and JMPR on the microbiological
aspects of food safety to address particularly microbiological risk assessment.  The results of these
risk assessments will provide the scientific basis for measure to reduce illness from microbiologicalhazards in foods.
Effective management of microbiological hazards is enhanced through the use of tools like
Microbiological Risk Assessment (MRA) and Hazard Analysis and Critical Control Points Systems
(HACCP).  Sound microbiological risk assessment based on an understanding of the nature of the
hazard is a tool to set priorities for interventions.  HACCP is a tool for process control through theidentification of critical control points.  The ultimate goal is improvement of public health, and both
MRA and HACCP are means to that end.G/SPS/GEN/274
Page 16
CHEMICAL HAZARDS
Chemicals are a significant source of food-borne illness, although effects are often difficult to
link with a particular food.  Chemical contamin ants in food include natural toxicants such as
mycotoxins and marine toxins, environmental contaminants such as mercury, lead, radionuclides anddioxins, and naturally occurring chemicals in plants, such as glycoalkaloids in potatoes, may also pose
a potential risk to health.  Food additives and nutrients such as vitamins and essential minerals,
pesticide and veterinary drug residues are deliberately used to increase or improve the food supply,
but assurance must first be obtained that all such uses are safe.
Chemical contamination of food can affect health after a single exposure or, more often, after
long-term exposure; however, the health consequences of exposure to chemicals in food are often
inadequately understood.  While assessments of the risks associated with exposure to pesticides,veterinary drugs and food additives are usually supported by extensive information, fewer data are
available on the toxicology of contaminants in food.  New understanding of the potential for
chemicals to affect the immune, endocrine and de veloping nervous systems should continue to be
incorporated into hazard characterizations of chemicals in food.
Risk assessments must take into account the potential risks of sensitive population groups
such as children, pregnant women and the elderly.  They must also address concern about cumulative,
low-level exposure to multiple chemicals.  Testing procedures and other methods of assessment for
adequate evaluation of these potential risks are being developed and validated.  Estimates of the
exposure of specific sub-populations are often hampered by inadequate data on dietary intake and on
levels of contamination of food.  This lack of information is exacerbated in developing countries,where little reliable information is available on the exposure of their populations to chemicals in food.
Public awareness about chemicals in food is relatively high, and consumers continue to
express concern about the risks to health due to the deliberate addition of chemicals to food.
Increasing concern is also being expressed about the introduction of contaminants into the food chain
from industrial pollution of the environment.  Recognition that some pesticide residues and otherchemicals may affect the hormonal system has further heightened public concern about persistent
organic pollutants (POPs).
The challenges for risk assessment of chemicals include consideration of susceptible
populations such as children, pregnant women and the elderly, cumulative low-level exposure to
multiple chemicals and effects on foetal neural development.  Work is needed to develop and validate
methods to evaluate these potential risks adequately.  The GEMS/Food database should be expanded
to include more countries and more comprehensive data on the food intake of sub-populations and onthe concentrations of contaminants in food commodities.  Improved risk assessments with minimized
uncertainty will provide a better, more acceptable basis for international and national standard setting
and reduce concern about the safety of food.
SURVEILLANCE
a) Outbreaks of food-borne disease attract media attention and raise consumer concern.
However, cases of food-borne illness occur daily in all countries, from the most to the
least developed.  As most of these cases are not reported, the true dimension of the
problem is unknown.  This hidden burden means that in many countries the issue of
food safety fails to secure the resources and support necessary for the identificationand implementation of effective solutions.
b) Effective control of food-borne disease must be based on evaluated information about
food-borne hazards and the incidence of food-borne disease.  Development of aG/SPS/GEN/274
Page 17
strategy to reduce food-related risks requires knowledge about the current levels of
food-borne disease in Member States.  It must also be based on an appreciation of the
targets and time-frame for improving food safety.  This should be an on-going
process, in which new targets are set when old ones are achieved, and progress should
be monitored continuously in targeted surveys.
The absence of reliable data on the burden of food-borne disease impedes understanding
about its public health importance and prevents the development of risk-based solutions to its
management. Strategies and methods are needed for surveying food-borne disease and food
contamination.  An epidemiological, laboratory-based survey system should be based on sentinel sites
and regional and/or international laboratory networks.  A necessary prerequisite for risk-based
strategies based on optimized surveys is an interd isciplinary approach involving strong collaboration
among all sectors dealing with food-borne disease surveillance and food safety in the health sector.
NEW TECHNOLOGIES
The objectives of new technologies, such as genetic engineering, irradiation of food, ohmic
heating and modified-atmosphere packaging, are to increase agricultural production, extend shelf life
or make food safer.  Their potential benefit for public health is great: genetic engineering of plants canincrease the nutrient content of foods, decrease their allergenicity and improve the efficiency of food
production. However, the potential public health effects of these technologies have raised concern
globally during the past decade.
Some new technologies benefit the health and economy of communities and contribute to
sustainable development.  However, countries should be provided with the results of objective,rigorous assessments of the potential risks associated with these technologies before being asked to
accept them.  Moreover, countries should be assi sted in developing cap acities fo r analysis and
assessment of such results of risk assessments.  The basis for the safety assessments should be easy to
understand and well communicated, so that the public can be involved at the early stages of this
process.  The evaluation should be based on internati onally agreed principles that include factors other
than considerations of safety and risk, such as (health) benefits, socioeconomic factors, ethical issues
and environmental assessments.  Such considerations should be developed with other WHO partners
such as FAO, UNEP, OECD and the World Bank.
CAPACITY BUILDING
Most developed countries continue to expand their capacity to protect their populations from
exposure to unacceptable levels of microorganisms and chemicals in food.  Public awareness of therisks involved is relatively high in these countries, and many governments have made clear
commitments to improve food safety.
Developing countries have many competing priorities in their health agendas, and food safety
has not, in the past, been recognized as a vital public health issue.  However, it is becoming clear that
food-borne disease has a significant impact on health.  The globalization of the food trade and thedevelopment of international food standards have also raised awareness of food safety in developing
countries.  Placing it on the political agenda is the first vital step in reducing food-borne illness.
The consumption of locally produced food is more common in developing countries.  Fewer
processed and packaged foods are available, large volumes of fresh food are traded in traditional
markets, and food eaten outside the home is typically prepared by street sellers.  Most of the concernfor food safety is related to inappropriate use of agricultural chemicals, poor storage of food, an
absence of food inspection, lack of infrastructure such as potable water and inadequate refrigeration
and lack of awareness about food safety and hygiene.G/SPS/GEN/274
Page 18
Many developing countries are poorly equipped to respond to existing and emerging food
safety problems.  They lack technical and financial resources, an effective institutional framework,
trained manpower and sufficient information about the hazards and risks involved.  The risks are
especially great in countries where low national income coincides with rapid industrial and
agricultural development.
A WHO survey in 1989 of national capacities for effective protection against adverse
environmental factors, including a clean water supply, basic sanitation and food safety, showed that
less than 10% of the 136 developing countries had adequate capacities.  Few of these countries had
adequate legislation, standards or regulations or the capacity to enforce and assess them.  Most lacked
adequately skilled staff, effective mechanisms fo r intersectoral action and adequate financing and
strategies to overcome these limitations.  Therefore, while the identification of hazards and risks in
food is vital in strategic planning, the capacity to assess and manage those risks is a fundamental lackin many developing countries.  Future work will focus on identifying gaps in the infrastructure and
capacity of Member States to address food safety, and tailored programmes will be designed to close
those gaps.  WHO will advocate food safety as a public health issue at the national level and as a
priority for funding from donors.  WHO will also provide appropriate technical assistance and
education tools for food safety initiatives.
THE ROLE OF WHO IN FOOD SAFETY
WHO 'S MANDATE
WHO has a specific mandate for the protection of public health.  Its mission is ‘ the attainment
by all people of the highest possible level of health' .  WHO's role in food safety is to reduce the
burden of food-borne illness by advising and assisting Member States to reduce exposure to
unacceptable levels of chemicals or microorganisms in food.
The 1948 Constitution includes specific charges relating to food safety:
• Assist governments in strengthening hea lth services relating to food safety;
• promote improved nutrition, sanitation and other aspects of environmental hygiene;
• develop international standards for food;  and
• assist in developing an informed public opinion among all peoples on matters of food
safety.
WHO's approach to achieving these changes is to cooperate with countries on technical issues
and to stimulate cooperation so that people everywhere may achieve health for all, while maintaining
a healthy environment and charting a course for sustainable development.  A food supply that is
adequate in quantity, quality and safety is a prerequisite for achieving and maintaining the health of
the world's population.
WHO FOOD SAFETY INITIATIVES
WHO has been involved in food safety for over five decades.  In May 1963, the Sixteenth
World Health Assembly approved the establishment of the Joint FAO/WHO Food Standards
Programme, with Codex as its principal organ.  Th e main objective of the Commission is to protect
the health of consumers and to ensure fair practice in food trade through the elaboration of foodG/SPS/GEN/274
Page 19
standards contained in a food code (Codex).  The participation of WHO was required because of its
mandate for public health and food safety.
In 1978, the Health Assembly requested the Director-General to develop a food safety
programme and address the control of food-borne diseases and food hygiene.
WHO's central role is a normative one and includes international standard setting and the
facilitation of risk assessments.  WHO has promoted the concept of risk analysis as a framework for
the management of food safety.  The main focus is the development of methods for quantitative
microbiological and chemical risk assessment, food-borne disease surveillance and assessment of the
safety of the products of genetic engineering.
WHO also provides technical assistance to governments, through its regional offices, to
ensure a safe food supply for their populations.  As a part of its mandate to support capacity building
in Member States, WHO provides training in food sanitation in community-based programmes andthe Healthy Market Initiatives.  In collaboration with international, regional and national agencies, it
provides training in risk analysis and other aspects of food safety.  WHO assists national governments
in developing and implementing food safety programmes and food legislation and provides support
for setting up information systems for monitoring food contamination and surveying food-borne
disease.
WORLD HEALTH ASSEMBLY RESOLUTION
The Fifty-third World Health Assembly in May 2000 gave unanimous support for Resolution
WHA53.15 on food safety.  This Resolution confirmed food safety as an essential public health
priority and committed WHO and its Member States to a range of multisectoral and multidisciplinaryactions to promote the safety of food at local, national and international levels.  Specifically, it
resolved to expand WHO's responsibilities in f ood safety, and to use limited resources efficiently to
promote interventions that will improve global food safety to promote food safety as an essential
public health function.
WHO'S FOOD SAFETY STRATEGY
Approaches
• Prevent exposure to unacceptable levels of microbiological agents and chemicals in
food along the entire production chain.
• Bring scientific rigour, objectivity and balance to food safety initiatives.
• Adopt an innovative approach to problem solving and accept the challenge of change.
• Advocate and assist in the development of risk-based, sustainable, integrated food
safety systems.
• In cooperation with other sectors and partners, effectively and promptly assess,
communicate and manage food-borne risks.Goal
To reduce the health burden of food -borne disease.G/SPS/GEN/274
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Issues
• Public trust and confidence places WHO in a leadership position in global food safety.
• Current food safety systems do not perform optimally, and new preventive efforts are needed to
reduce the burden of food-borne disease.
• A risk-based approach should be used to set priorities for risk-reducing activities.
• Cooperation between international agencies, especia lly FAO, must be improved and better links
forged between national agencies involved in food safety to eliminate duplication, promote
interdisciplinary work and increase the effectiveness of activities to reduce food-borne disease.
• Food safety systems based on a preventive approach, such as HACCP, are needed, especially in
developing countries.  Such systems should be based on the premise that food safety is a priority
for health.
• Effective participation of Member States, especially developing countries, is needed in setting
international standards.
• Risk assessment, surveillance and capacity building contribute to reducing food-borne disease.
The WHO Food Safety Strategy has been developed with the assistance of experts from
Member States, regional advisers in food safety, international partners and related programmes at
WHO.  Its aim is to identify global needs in food safety and to provide a global approach to reducingthe burden of food-borne illness.  The Strategy gives broad lines of action which, when adopted, will
result in a reduction in food-borne illness.  It aims to reinforce the pivotal ro le of WHO in global food
safety and to assist Member States, donor agencies and funding organizations to identify, support and
implement programmes that address this issue.
WHO has pointed out that traditional food sa fety measures have not been efficient in
preventing food-borne disease over the last decades primarily because of problems of linking hazard
in foods with human health risk and because of poor collaboration between the different actors in food
safety management systems.  WHO's goal of reducin g the public health burden of food-borne disease
can best be achieved through systematic application of risk analysis.  Structures and systems must
therefore be developed at national, regional and international levels to survey food-borne disease,
conduct risk assessments and implement risk management strategies.  Capacity building and
coordination of scientific effort are essential ro les of WHO and are important elements of its food
safety strategy, but these must be combined with strong commitment and resources in order to ensure
food safety through targeted, risk-based prevention initiatives.
In implementing this strategy, WHO will take a prominent role in promoting food safety and
act as the international broker and coordinator of food safety initiatives, primarily in cooperation with
FAO.  WHO will assist in raising the profile of food safety for public health at the national level,promote the development of a global framework for food safety and assist with capacity building in
food safety to Member States, including the provision of technical assistance.
The WHO food safety strategy outlines the broad lines of action needed to reduce food-borne
illness.  Once the Strategy has been agreed upon by Member States, WHO will elaborate a more
detailed work plan outlining specific activities a nd initiatives to ensure the Strategy's success.  The
Strategy is predicated on a long-term commitment to food safety as a means of improving public
health, which will be reflected in medium- and long-term work plans.
While the existing activities in food safety have focused primarily on hazards in food, the
proposed strategy will address the broader concept of risk along the entire food production chain.  It
will take into consideration the need for sustainable agricultural production systems in all regions ofG/SPS/GEN/274
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the world and will redirect some of the existing approaches to ensure that they meet the emerging
challenges of global food safety.
The proposed Global Strategy takes into account strategies and resolutions on food safety that
have been adopted by regional committees, which are consistent with the new Global Strategy.
Countries are therefore urged to take guidance from them in improving food safety.
The Strategy includes the following approaches:
I. Strengthening surveillance systems of food-borne diseases;
II. improving risk assessments;
III. developing methods for assessing the safety of the products of new technologies;
IV. enhancing the scientific and public health role of WHO in Codex;
V. enhancing risk communication and advocacy;
VI. improving international and national cooperation;
VII. strengthening capacity building in developing countries.
APPROACH I
Strengthening Surveillance Systems of Food-borne Diseases
Surveillance of food-borne diseases is becoming an increasingly high priority in the public
health agenda in many countries.  It is instrumental for estimating the burden of food-borne diseases,
assessing its relative impact on health and economics and evaluating disease prevention and controlprogrammes.  It allows a rapid detection and response to outbreak.  In addition, it is a major source of
information for conducting risk assessment, and more broadly for risk management and
communication.  Food-borne disease surveillance sh ould be integrated with food monitoring data
along the entire feed-food chain.  Integrating such da ta would result in robust surveillance information
and will allow appropriate priority setting and public health interventions.  Intersectorial and inter-
institutional collaborations are of paramount importance.
The WHO strategy recognizes that surveillance of food-borne diseases should be given a high
priority in the development of food safety infrastructure.  Building capacity for public health
laboratories to conduct laboratory-based surveillance and for conducting epidemiologically-based
surveillance are important global public health objectives.  The needs of developing countries should
be particularly considered.  WHO should be proactive in establishing one or more sentinels sites forfood-borne disease in developing countries.  There is a need to develop and coordinate a global
approach to strengthen surveillance at national, re gional and international levels.  Food-borne disease
reporting should be integrated into the revision of the International Health Regulations.G/SPS/GEN/274
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Activities:
• Encourage Member States commitment to food-borne disease surveillance.
• Facilitate the strengthening of food-borne disease surveillance systems (laboratory- and
epidemiologically-based systems) and food monitoring programmes.
• Promote sentinel sites in developing countries.
• Develop and coordinate global approach es for food-borne disease surveillance.
APPROACH II
Improving Risk Assessments
WHO and FAO have been in the forefront of the development of risk based approaches for
the management of public health hazards in food.  Risk analysis is well established for chemicalhazards.  Now WHO and FAO are extending the experience and expertise developed in risk analysis
for chemical hazards to microbiological hazards.  WHO and FAO have embarked on a new
programme of activities with the objective of conducting risk assessments that can serve as a basis for
risk assessment.  The results of these risk assessments will be published in a new series of documents
on microbiological risk assessment.
The development by Codex of an internationally agreed framework for risk analysis that
serves as a basis for setting food standards at national and international levels has focused attention on
the adequacy of risk assessments.  WHO has a long history of providing assessments of risk in food to
Codex and to Member States.  The Joint FAO/ WHO Expert Committee on Food Additives (JECFA)
and the Joint FAO/WHO Meeting on Pesticide Residues (JMPR) are recognized as being at the
forefront of scientific knowledge in assessing the risks of chemicals in food.  The pressure on these
advisory bodies to meet the needs of the Commission is increasing.  JECFA and JMPR must also dealwith issues such as cumulative exposure to low conc entrations of chemicals, foetal neurotoxicity and
the risks of specific sub-populations.  To meet the needs in this area, the work of WHO in risk
assessment will be strengthened, and the reports of the assessments will be more detailed and be made
available to Member States more promptly.  WHO will also review the procedures used by the expert
bodies to ensure consistency, transparency and to avoid conflict of interests.
Through the GEMS/Food programme, WHO plays a leading role in promoting the collection,
collation and evaluation of data on chemicals in foods and the total diet at regional and international
levels.  WHO develops and maintains the GEMS/Food databases and the OPAL database, which are
the main sources for estimating exposure to chemicals in food.  These databases must be strengthened
to meet the demand for information on differences in exposure to chemicals in different regions.They are also needed for estimating the exposure to chemicals of subgroups within populations, such
as children.  These challenges are being taken up by WHO and are being incorporated into the work
of JECFA and JMPR.
A better evaluation of the burden of food-borne disease is urgently required in order to set
priorities for future activities of national food safety programmes.  The available data suggest that thefrequency of food-borne disease is increasing globally, but disease incidence and cause-and-effect
relationships must be documented.  WHO will in itiate a Global Strategy for surveying food-borne
diseases by urging Member States to set up labo ratory-based systems covering both outbreaks and
endemics and for monitoring contamination of food by chemicals and microorganisms.  WhenG/SPS/GEN/274
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requested by Member States, WHO will support capacity building for data collection and survey
systems.  WHO will also establish common, internationally agreed formats for harmonized data
collection and determine the minimal data requirements for future food safety initiatives in the
regions.  WHO will also develop a web-based syst em to collect, report and communicate data from
surveys conducted in Member States.  A surveillance system for Salmonella  and anti-microbial
resistance already exists.
Activities:
• Development of internationally agreed tools for national and international standard setting and
for setting national priorities and food safety initiatives;
• development of timely, appropriate risk assessments to serve as a basis for international
standards and guidelines and national food regulations;
• development of accurate, comprehensive information on the global status of food-borne disease
and on chemicals and microorganisms in food;
• development of timely, readily available risk assessments from JECFA, JMPR and JEMRA to
Member States;
• effective transfer of technologies and data for microbiological risk assessments between
countries.
APPROACH III
Methods for Assessing the Safety and Risks of New Technologies
Application of advances in biotechnology to food production presents consumers with new
challenges and questions.  The Resolution of the Fifty-third World Health Assembly recognized
genetic engineering of food as an important public health issue and resolved that WHO should
strengthen its capacity to provide a scientific basis for decisions on the effects on human health of
genetically modified foods.
WHO and FAO have worked since 1990 to achieve consistent standards and criteria for
assessing the safety of foods and food ingredients derived from genetic engineering.  The Joint
FAO/WHO Expert Consultation, held in June 2000, established the substantial equivalence approachas a key step for assessing safety and risks and as general guidance for scientific assessment of the
risks associated with genetically modified food.  The safety assessment itself requires an integrated,
consistent, case-by-case approach to the evaluation of  such foods.  A subsequent Expert Consultation
focused mainly on the allergenic potential of genetically modified foods, which remains the most
widely discussed issue in this area.  Reliable methods are needed for assessing the allergenic potentialof foods produced by recombinant DNA technologies.
WHO continues to take part in discussions on this subject by providing expert advice on the
health risks of these new technologies and by contributing to a better understanding of new
developments in order to address the concerns of consumers.  Future work will be coordinated withthe activities of other international organizations.  This series of expert consultations will continue to
proved a scientific framework for the safety and nutritional assessment of foods derived from
biotechnology, as well as for the inclusion of other scientific aspects of the introduction of such foods.G/SPS/GEN/274
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Activities:
• Promotion of a holistic approach to the production and safe use of foods and food ingredients
derived by both traditional and new methods of production, including genetic engineering;
• development of improved, internationally agreed methods and guidelines for evaluating the
safety of new technologies;
• formulation of policy and guidance on the use of foods and food ingredients derived by genetic
engineering;
• development of a framework for evaluation that includes not only considerations of safety but
also factors such as health benefits, environmental effects and socioeconomic consequences.
APPROACH IV
Enhancing the Scientific and Public Health Role of WHO in Codex
Unsafe food produced in one country or region poses a potential problem for all consumers,
as the global distribution of food increases the possibility that contaminated food produced in one
country could pose a risk in other or all parts of the world.  The establishment of global food safety
standards will help to protect people everywhere from the risks of food-borne disease.  Whileconsiderable resources are allocated to food safety in most developed countries, the greatest
challenges remain in building systems and infrastructures for reducing food-borne illness in
developing countries.
The Resolution of the Health Assembly recogn ized the importance of standards, guidelines
and other recommendations of Codex in protecting the health of consumers and ensuring fair tradingpractices.  WHO plays a major role in the scientific and public health work of Codex, by providing
scientifically based risk assessments of short-term and long-term risks to health related to food.  It
also plays a significant role by advocating that the standards set by the Commission are based on
considerations of public health and safety.
WHO will improve the methods for risk assessment for chemicals and microbiological
hazards in food in order to provide accurate, globally representative bases for standard setting by
Codex.  In regard to GEMS/Food databases, it will strive to obtain better data on food intake and onthe level of contamination of food in developing countries to ensure that the risk characterizations
provided to Codex are of global significance.  The risk assessments will also provide adequate
information to risk managers on issues such the risks associated with exposure of children, pregnant
women and the elderly to food-borne chemicals.
The adoption and enforcement of national standards consistent with Codex standards will
help to ensure a safe food supply and will also fa cilitate entry into the global marketplace.  It is
essential that developing countries and regions participate effectively in the development of Codex
standards.  To do so, they must develop and/or improve their survey and monitoring methods for food
contamination and intake and use these data to establish achievable international limits and
recommendations for hazards in food.  WHO will assist countries with local technical and scientifictraining and, when possible, assist them in obtaining the necessary data for risk assessments.G/SPS/GEN/274
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Activities:
• Greater involvement of the health sector in the development of Codex standards, guidelines and
recommendations;
• work to ensure that the decisions of Codex are based on the premise that the health of
consumers must be protected;
• encourage and assist in the effective participation of developing countries in the work of Codex.
APPROACH V
Enhancing Risk Communication and Advocacy
WHO recognizes the importance of open, intelligible risk communication between all parties
affected by food-borne risks and will take a prominent role in both global and regional initiatives.
Good communication will result in useful dialogue  between the stakeholders (consumers) in risk
analysis and will enable their participation in the process.  It will also increase information sharing
and consumer education aimed at improving food safety practices at home.
Enhancing risk communication will promote consumer confidence in the safety of the food
supply.  Risk communication is an essential component of any strategy for food safety.  Clear,
accurate, readily accessible information about food safety issues must be available to the entire
community.  The high level of trust that Member States have in WHO places it in a responsible
position with regard to risk communication on ma tters of food safety.  Risk communication must
address the specific needs of the target audience — Member States, consumers, the food industry andregulators — by gauging which mechanisms and technologies are best for delivering the messages.
Countries may need special assistance in risk communication strategies.
The WHO risk communication strategy must encompass information derived from risk
assessments, crisis response and rapid alert systems and perceptions of risk.  Communication of
uncertainties and greater transparency in risk assessment and risk management are both important and
WHO should explore ways to improve effective interaction between risk assessors and risk managers.
WHO risk assessments must thus be clear and concise and be made available promptly.
One of the major impediments to improving food safety at a global level is the relatively low
priority given to this issue in the public health agendas of many developing countries.  WHO will
advocate food safety as a priority.  It will sensitize policy-makers in Member States by emphasizing
the many public health and economic gains to be achieved by increased activity in this area, such as
the alleviation of human suffering and prevention of loss of life, the reduction of poverty, reduction of
the costs of medical treatment and those associated with sick leave, improvement of the marketability
of food with all the attendant benefits for economic development, and the promotion of tourism.
WHO will continue to exercise a leadership role in food safety by developing a risk
communication strategy and a range of products design ed to promote food safety in Member States.G/SPS/GEN/274
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Activities:
• Advocacy to ensure that food safety is considered a public health priority;
• advocacy to ensure that the results of risk analyses are communicated in a readily
understandable form to permit dialogue between stakeholders, including consumers;
• development of food safety products and publications for targeted audiences;
• development of dialogues and methods for fostering participation, including focusing and
evaluating the effects of risk communication.
APPROACH VI
Improving International and National Cooperation
Wide-ranging cooperative activity is needed to ensure safe food at both national and
international levels. WHO must work in collaboration with other international organizations to
include food safety as an essential public health function.  The goal of such collaboration is
sustainable, integrated food safety systems to ensure a reduction in health risks along the entire food
chain, from primary production to the consumer.  WHO has established a network of Collaborating
Centres for various aspects of food safety which have contributed significantly to the work of theOrganization.
WHO's scientific and public health role in the work of Codex, undertaken jointly with FAO
within the Joint FAO/WHO Food Standards Programme, will expand to meet the challenges of food
safety and to ensure that standards are set on the basis of the protection of public health.  WHO will
also continue its work with WTO to ensure that  Member States take health considerations into
account in the globalization of trade.  WHO also collaborates on food safety with UNEP, UNDP, ILO,
OECD, and many other nongovernmental organi zations, including Consumers International,
International Association of Consumer Food Orga nizations, the Industry Council for Development,
the International Life Sciences Institute, development banks and academia.  This collaboration should
be based upon the comparative understanding of each organization.
At the country level, WHO will improve the coor dination of food safety activities in order to
raise awareness about the public health issues and to reduce duplications of effort and confusion aboutthe roles of the various sectors involved in food safety.  The Guidelines for Strengthening Food
Control Systems  drafted by WHO and FAO and the preparation of guidelines for national food
legislation are examples of the type of assistance provided to Member States.
Activities:
• Support Member States in taking health consider ations into account in the globalization of food
trade, in cooperation with WTO;
• establish an international coordination group on food safety to ensure a consistent, effective
approach to food safety;
• coordinate activities on food safety undertaken by international bodies at the country level;
• develop effective links and coordination among agencies involved in food safety in Member
States.G/SPS/GEN/274
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APPROACH VII
Capacity Building
WHO attempts to improve food safety in Member States predominantly through its regional
and country offices.  While much progress has been made by the provision of technical cooperation
for the development of national food safety programmes and capacity building, much remains to be
done.
The Food Safety Resolution of the Fifty-third World Health Assembly (WHA53.15)
requested the Director-General to support capacity building in Member States, and especially in less
developed countries, and to facilitate their full participation in the work of Codex and its various
committees, including risk analysis.
Inadequate capacities in developing countries continues to be a major obstacle in achieving
WHO's food safety objectives.  Underdevelopment poses difficulties for producing safe food, for
domestic consumption and export.  Countries that gain these capacities can improve health at both
national and international levels. Improved capacity  for surveying and monitoring is essential in
enabling individual countries to assess the risks associated with food hazards and to set priorities and
manage those risks more effectively.
Many developing Member States are considering the adoption of new food laws and food
regulatory systems.  In establishing systems for delivering safer food, they can draw lessons from theexperience of more developed Member States and build food safety programmes that are based on the
public health principle of prevention, rather than on the concept of sanctions.  Their programmes
should include laws that give them a clear mandate and the authority to include prevention and to take
a holistic view in reducing food-borne disease.
Capacity building activities range from advocacy to technical collaboration with ministries of
health (and other partners) in Member States and include human resource development.  The building
of national capacity for food safety involves many players, such as the health, agriculture, trade and
commerce sectors as well as provincial and municipal governments.  It is essential that capacity
building be based on collaboration and coordination among these actors.  The health portfolio is often,
but not always, the most appropriate lead agency at the national level.
Capacity building must start with an assessment of gaps and needs to ensure that the activities
are appropriate and will address deficiencies, including the absence of national food safety plans,
outdated laws and regulations, the absence of surveys for food-borne disease, poorly resourced and
structured food inspectorates and a lack of educational and training materials for food safety.  The key
steps include strengthening local technical and scientific capacity and developing effectiveeducational tools and programmes.
The WHO Regional Offices have developed or are in the process of developing regional
strategies for food safety.  The Global Strategy has taken these draft regional strategies into
consideration. Success in capacity building depends on strong involvement of the Regional Offices inidentifying food safety capacity needs and priorities.  Training remains an important component of
capacity building.  WHO Collaborating Centres should be better used for training staff in fields such
as surveying food-borne disease and laboratory technologies.  These centres could also be used in
coordinating regional food safety activities and more innovatively to achieve food safety goals.G/SPS/GEN/274
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Activities:
• Encourage donor support for food safety as a priority in public health in the least developed
countries;
• development of regional food safety strategies based on both the common elements outlined in
the WHO food safety strategy and specific regional needs;
• establishment of a network of WHO collaborating centres engaged in capacity building;
• provision of technical assistance and educational tools for food safety initiatives.
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