Food Safety Law in China <UN> The Composition of the Curatorium of the Xiamen Academy of International Law President Professor Jiuyong shi (Former President of the International Court of Justice) Members José Enrique alvarez, Herbert and Rose Rubin (Professor of International Law, New York University Law School, u.s.a.) An chen (Professor of International Economic Law at Xiamen University) Bin cheng (Professor Emeritus of Air Law at University of London) Chia-Jui cheng (Professor of International Law at Soochow University School of Law; Visiting Professor of International Law, Faculty of Law, Xiamen University) José Angelo Estrella faria (Secretary-General, unidroit, Rome) Herbert kronke (Dean, Faculty of Law, University of Heidelberg, Germany) Yixin liao (Professor of Law, Xiamen University) Vaughan lowe (Chichele Professor of Public International Law at Oxford University) Andreas F. lowenfeld (Professor of International Law at New York University) H.E. Hisashi owada (Judge at the International Court of Justice, Former President of International Court of Justice) Malcolm N. shaw, Sir Robert Jennings (Professor of International Law at University of Leicester) Nicolas Jan schrijver (Professor of Public International Law at Leiden University) Renaud sorieul (Secretary, uncitral, Vienna) H. E. A.A. cancado trindade (Judge and Former President of the International- American Court of Human Rights) H.E. Wilfrido V. villacorta (Ambassador to the asean, the Republic of Philippines; Former Deputy Secretary – General of asean) Huaqun zeng (Director, Institute of International Law, Xiamen University) Chongshi zhu (President, Xiamen University) Secretary-General Chia-Jui cheng (Professor of International Law at Soochow University School of Law; Visiting Professor of International Law, Faculty of Law, Xiamen University) The titles published in this series are listed at brill.com/ccxa <UN> Food Safety Law in China Making Transnational Law VOLUME 6 2015 By Francis Snyder LEIDEN | BOSTON <UN> Library of Congress Cataloging-in-Publication Data Names: Snyder, Francis G., author. Title: Food safety law in China : making transnational law / By Francis Snyder. Description: Boston : Brill Nijhoff, 2015. | Series: Collected courses of the Xiamen Academy of International Law ; 6 | Includes bibliographical references and index. Identifiers: LCCN 2015038106| ISBN 9789004301054 (hardback : alk. paper) | ISBN 9789004306929 (e-book) Subjects: LCSH: Food law and legislation--China. | International law--China. Classification: LCC KNQ3377 .S69 2015 | DDC 344.5104/232--dc23 LC record available at http://lccn.loc.gov/2015038106 This publication has been typeset in the multilingual ‘Brill’ typeface. With over 5,100 characters covering Latin, ipa, Greek, and Cyrillic, this typeface is especially suitable for use in the humanities. For more information, please see www.brill.com/brill-typeface. issn 1875-4678 isbn 978-90-04-30105-4 (hardback) isbn 978-90-04-30692-9 (e-book) Copyright 2016 by Koninklijke Brill nv, Leiden, The Netherlands. Koninklijke Brill nv incorporates the imprints Brill, Brill Hes & De Graaf, Brill Nijhoff, Brill Rodopi and Hotei Publishing. All rights reserved. No part of this publication may be reproduced, translated, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopying, recording or otherwise, without prior written permission from the publisher. Authorization to photocopy items for internal or personal use is granted by Koninklijke Brill nv provided that the appropriate fees are paid directly to The Copyright Clearance Center, 222 Rosewood Drive, Suite 910, Danvers, ma 01923, usa. Fees are subject to change. This book is printed on acid-free paper and produced in a sustainable manner. <UN> For Anne-Lise ∵ <UN> Contents Acknowledgments XIII List of Tables and Figures XXI List of Abbreviations XXIII Biographical Note XXIX Selected Publications XXX 1 Introduction 1 2 Three Worlds of Melamine 9 Introduction 9 Purpose and Scope 9 Some Words about Method 11 Organisation and Argument 13 The First World of Melamine 16 Introduction 16 Multinational Companies, wto Accession and Joint Ventures 17 International Trade, Competition for Markets and Anti-Dumping 30 Illegal Trade and the Rise of Foreign Risk Regulation 36 The Second World of Melamine 40 Introduction 40 The Rise of Sanlu 41 The Sanlu Model 45 The Race to the Bottom 51 Melamine in Baby Formula 55 The Third World of Melamine 60 Introduction 60 The Party-State 61 Bureaucratic Networks 65 Administrative Organisation of Food Safety Regulation 74 Food Safety Regulation of Melamine in Practice 78 Intervention of Central Party-State Authorities 86 Conclusion 99 <UN> viii Contents 3 Emergence of Modern Chinese Food Safety Law 108 Introduction 108 Ensuring the Quality of Dairy Products 111 The Need to Protect Public Health and Reassure the Public 111 The qsdp Regulation 115 The ppfm Measures 119 Restructuring the Dairy Sector 121 Dairy Farmers 121 Milk Collection Stations 125 Processors and Manufacturers 126 Sanlu Bankruptcy 127 Unexpected Consequences 130 Law, Sanctions and Managed Justice 134 Party and Government 134 High-Profile Criminal Cases 138 Criminal Prosecution of Middlemen and Milk Producers 146 Civil Suits by Victims for Compensation 147 Administrative Compensation 150 Managed Justice 152 Toward a National Food Safety Law 155 Background 155 The 1995 Food Hygiene Law 157 The 2009 Food Safety Law 162 The 2009 State Council Implementing Regulation 173 Conclusion 175 4 Transnationalisation of Chinese Dairy Standards 180 Introduction 180 The Normative Framework for Standards before Melamine 181 wto sps and tbt Agreements 181 Historical Background of Standards in China 186 The 1988 Standardization Law 188 The 1990 Standardization Law Implementing Regulations 192 The 2001 Measures for the Administration of Adoption of International Standards 195 The 2002 Notice on International Standards 200 <UN> Contents ix Regulatory Reforms after Melamine 202 Food Safety Standards on the Eve of 2009 202 The 2009 Food Safety Law and Standards 202 The 2009 Food Safety Law Implementing Regulation 208 The 2010 Administrative Measures for National Food Safety Standards 209 Politics of Dairy Standards 211 Two Dilemmas 211 Small Workshops, Standards and Factions 212 International Dairy Federation (idf) in China 217 New Standards for Dairy Products 222 Precursors 222 Adoption of New Dairy Standards 224 Protein, Bacteria and Compromise 229 Melamine Standards and Transnational Relations 232 Conclusion 239 5 Transnational Sites of Food Safety Regulation 241 Introduction 241 Food and Agriculture Organisation (fao) 243 World Health Organisation (who) 245 Structure 245 Relations 246 International Food Safety Authorities Network (infosan) 252 Structure 252 Relations 254 World Trade Organisation (wto) 257 Structure 257 Relations 262 Other Bodies 267 Introduction 267 Codex Alimentarius Commission (cac) 268 Structure 268 Relations 273 World Organisation for Animal Health (oie) 274 International Plant Protection Convention (ippc) 275 International Organisation for Standardisation (iso) 275 Conclusion 276 <UN> x Contents 6 Globalisation of National Food Safety Standards through wto Consultations 278 Introduction 278 The Cases 281 Classification 281 Pre-Importation Production and Treatment Methods 283 Import Bans – Procedures 292 Import Bans – Health and Quality Standards 301 Post-Importation Testing and Inspection 306 Shelf-Life 308 Discussion 313 Introduction 313 Number and Categories of Cases 313 Participants 313 Mode of Settlement 317 Winners and Losers 324 Conclusion 327 7 International Food Safety Standards in wto Case Law 334 Introduction 334 Legal Bases for Cross-References 336 Introduction 336 Vienna Convention on the Law of Treaties (vclt) 336 Agreement on Sanitary and Phytosanitary Measures (sps Agreement) 338 Agreement on Technical Barriers to Trade (tbt Agreement) 340 Cases on Basic Concepts 344 Introduction 344 Australia – Salmon 344 EC – Hormones 349 Japan – Agricultural Products 356 Cases on More Complex Questions 358 EC – Sardines 358 Japan – Apples 362 EC – Biotech Products 366 Australia – Apples 371 United States – Country of Origin Labelling (cool) 378 United States – Clove Cigarettes 380 India – Agricultural Products 384 Conclusion 389 <UN> Contents xi 8 Multilateral Monitoring of Chinese Food Safety Law 394 Introduction 394 Multilateral Monitoring within the wto 397 China’s wto Rights and Obligations 397 The Transitional Review Mechanism (trm) 399 The Trade Policy Review Mechanism (tprm) 402 wto tprm Reviews of China’s Food Safety Regime 403 The tprm and Food Safety Regulation in China 403 The 2006 Trade Policy Review 404 The 2008 Trade Policy Review 411 The 2010 Trade Policy Review 422 The 2012 Trade Policy Review 438 The 2014 Trade Policy Review 449 Discussion 467 tprm as an Institution 467 Questions and Questioners 468 Subject Matter 471 Conclusion 474 9 Conclusion 477 Appendix 1: Table of Treaties, Agreements and Related Documents 497 Appendix 2: Table of Constitutions and Statutes of International Organisations 501 Appendix 3: Table of Legislation and Regulations 502 Appendix 4: Table of Standards 517 Appendix 5: Table of Cases 519 Bibliography 523 Author Index 574 Subject Index 575 <UN> Acknowledgments Writing a book is like cooking. Both are creative activities, individual and col- lective, uniting mind and hand, and requiring imagination and experimenta- tion as well as retracing some well-worn channels. Both are processes involving structure