FISURAS Y GRIETAS

7.1. General

First of all it must be acknowledged that the ISO Guide 65 has gained acceptance all over the world to a huge extent. It is referenced (or incorporated) in all relevant systems and thus provides for a worldwide commonly accepted guidance on how to set up, structure and organise certification bodies that carry out organic certification.

Representatives of CBs as well as from the regulatory level recognize the ISO 65

‘guidance effect’, and underline that this already has led to harmonization with regard to CBs’ structure and organisation. This is considered as a value although it is criticized that still no mutual acceptance between the different regulatory systems with regard to the assessment and authorization of CBs’ competence is achieved. This major concern is expressed by almost all CBs. However, it is a result of the different application and interpretation of the Guide and of the different ways that accreditation and approval is organized.

Many CBs value that ISO 65 provides a good baseline and therefore clarity for CBs and parties involved. It has lead also to an increased trust in each other’s performance. However the overall impression is that ISO 65 applies too much bureaucracy.

It even can be stated that because ISO Guide 65 has already gained such an outstanding acceptance and strong positioning, most people who were asked about its value have problems to question this. It is considered as important means to demonstrate competence and most CBs consider this as a value.

CBs that do not restrict their scope of activity to organic certification value the fact that ISO Guide 65 is generally accepted in the food industry. Independent from whether organic would apply implementation of ISO 65, it is applicable in other private and regulatory contexts that are relevant for CBs as well as for their clients. EurepGAP and Utz Kapeh are two examples of other systems that require ISO 65 and that are of certain relevance in addition to organic certification for many organic operators. Therefore ISO 65 also provides for a harmonization potential with regard to other certification systems. CBs that include different certification systems within their scope have the interest to

demonstrate their competence based on a well accepted norm not only applicable in organic.

7.2. Language

CBs, especially those from developing countries, expressed their concern that language of ISO Guide is too abstract and thus holds the potential for misunderstandings. The guide is too general and is not translated to the specific circumstances with which CBs performing organic certification are confronted. This is especially a problem for CBs starting their business. Because of being too abstract, ISO Guide 65 does not provide the assistance and clear guidance new CBs are seeking for; additional support and further explanation is necessary in order to understand the required elements and to translate them for organic

certification circumstances. This is considered as a huge barrier because it is difficult to access consultancy on how to set up a CB.

There are several cases, especially in Africa but also in Asia, where specific development programs target the establishment of local inspection bodies by providing external funding and support to set up the relevant structures and to gain competence. Respective CBs are guided over a certain time period in order to make them eligible for accreditation or acceptance. Hopefully this will then result in structures and organizations that can persist without future external funding and support. This outcome is mainly a question of whether these structures eventually achieve international acceptance. It also depends on the

adjacent development of organic production and markets within the respective regions and countries.

7.3. Value of Structure and Elements of ISO 65

Quality System

Regarding the value of structure and specific elements of ISO 65 CB representatives expressed their concern that the Quality System provisions and especially the required documentation are too detailed and descriptive. The specific focus on the quality system together with all the elements that are outlined as part of the required quality system manual are binding a lot of resources. Some CBs questioned whether this specific Quality System focus is the adequate tool to ensure integrity of organic certification.

It is not that CBs in general question Quality system requirements however would

appreciate to reduce the overall documentation requirements. In this context the distinction between management review and internal audit was questioned and also too some extend the requirements related to document control procedures.

At the same time regulatory bodies express the need to specifically define the elements that have to be considered with regard to the quality system.

Change of certification requirements

Requirements that are applicable in case certification requirements are changed (ISO 65 refers to intended changes) are considered as unnecessary as well because this in most cases is out of CBs sovereignty that implement a regulatory system.

Complaints/ appeals

The ISO 65 requirement that also operators shall document all complaints is not considered as a valuable tool, because it is too demanding especially for farmers. Complaints

addressed to processing operations most often are related to the general product quality and not to the organic quality; whereas the requirement applicable for CB to handle and

document complaints and appeals is generally appreciated and considered as important.

Stakeholder participation

Some CBs have questioned the ISO 65 requirement to allow for participation of all parties concerned in the development of policies and principles regarding the content and

functioning of the CBs. However the relevance and value is considered different for private and for regulatory systems because within the latter some CBs consider state supervision as sufficient; it was mentioned in this context that stakeholders are already involved and

participate in setting the superior rules (standards, criteria) of the organic certification system; however the majority considers stakeholder participation as an important tool for guiding the functioning of a CB.

Confidentiality/ conflict of interest provisions

Confidentiality provisions as well as conflict of interest provisions are much appreciated however for some they are not specific enough to efficiently prevent conflict of interest situation in organic certification. Concern has been expressed by CBs with regard to the financial stability and undue economic pressure that may question impartiality.

Resolving any difference before proceeding with the evaluation (ISO 9.1)

This is seen as a theoretical requirement that practically can not be implemented by CBs. It is considered important that the certification system, its scope and standards are well understood, and that application documents clearly outline and explain the procedures applied, however the requirements applied on operators and for the production process are challenging therefore it is almost impossible to clarify all differences in understanding based on document review only; the inspection visit supports this process and this shall be acceptable for organic certification.

Future role of ISO 65 and IAC

There was some agreement that ISO Guide 65 is not specific enough to provide for efficient guidance for certification bodies conducting organic certification; as alternative document the IFOAM accreditation criteria was mentioned. IAC is considered a well adapted translation of the ISO 65 requirements in the organic context, however at the same time concern has been expressed that the IAC are too detailed for applying them in a worldwide context.

One proposal was that the IAC should be developed in the direction of a guidance document that clarifies how ISO 65 is understood in the organic context and how the requirements shall be implemented by certification bodies performing certification of organic products; however the guidance document shall provide for some flexibility based on the implementation context. It shall address more specifically the circumstance that most CBs are implementing regulatory and not private programmes.

7.4. Weaknesses of ISO 65

General

It was mentioned that ISO 65 mainly outlines a quality system; however that it is not a tool as such to safeguard organic integrity. Documentation, inspection as well as supervision shall network closer in order to prevent fraudulent situations. Some regulatory

representatives underlined that it is necessary to install local or country specific supervision bodies that provide for the relevant interpretations of the requirements applicable in the specific context of a country, also to ensure efficient surveillance and control of CBs performance. It was questioned that an overall supervision body that applies the requirements independent from the local or country specific context would function as well as country specific supervision bodies that authorise and approve CBs’ activities related to the country context.

Acceptance among the different supervision bodies (either private or regulatory) remains an unresolved question and hampers international trade. CBs raised this issue as a major burden. Recognition agreements, bilateral or even mutual equivalency agreements between governments are rare; this approach does not provide solutions in countries where no regulations exist and is especially disadvantaging the respective operations and CBs that are located in these countries.

Inspection procedures

ISO 65’s general approach is seen as its most relevant weakness; it is not adapted to the specific circumstances CBs are confronted with in organic. ISO 65 does not provide proper guidance on how to implement inspection and certification procedures; these procedures are at the same time considered as most important tools to safeguard organic integrity. On site inspection has a major role to identify non-compliances; therefore the applicable procedures on how to conduct inspection shall be clear and definite.

Inspectors’ qualification

The importance to assign well qualified, trained and experienced inspectors is considered essential. It is a challenge for inspectors to trace back whether all requirements are met. Good understanding and knowledge of the processes applied in the operations as well as the applicable standard provisions therefore is considered essential; this is commonly agreed. However there is also concern expressed on how qualification shall be safeguarded by applying uniform requirements. It was proposed to consider other tools that shall

improve inspector qualification. The development of a minimum curriculum for inspectors has been proposed as appropriate tool.

Chain of custody – what kind of security is appropriate

ISO 65 does not provide requirements that ensure organic integrity throughout the chain of custody. Most serious cases of fraud have resulted from manipulated certificates in the past. However the current organic system does not provide for unified tools that enable CBs to monitor the quantities throughout the chain of custody; the system is especially limited in case of operations that supply their ingredients from various sources involving different CBs. System requirements also do not address the fact that organic products today are traded globally. One CB proposed to require issuing product specific certificates

however this would result in serious additional documentation requirements for operators as well as for CBs in order to monitor the quantities and certificates issued.

At the same time this area also has to be discussed in a more general context addressing the question what kind of security certification in organic can provide, at the same time

considering the question how much has to be paid for this security. This is not only related to money and the costs but is also related to all the requirements an operator has to

implement. The investment necessary has to be assessed against the improved value and security that can be achieved. Costs and efforts applicable for the operators already create barriers to enter the organic market.

Specific circumstances – risk based inspection approach

Organic provides for several specific circumstances that are not addressed by ISO 65 requirements. There are different production areas (animal, plant production, wild

collection, processing, trading) or operational conditions such as split/parallel production, subcontracted production that again require specific evaluation procedures. These

circumstances are not addressed in ISO 65, although they bear the risk that organic integrity might be at stake.

CBs as well as regulatory representatives indicate interest to reconsider the annual inspection frequency in order to introduce and allow for a more risk based inspection approach and or Internal Control Systems. However concerns are expressed how this can be consistently applied because CBs are also in a highly competitive situation. Such development shall not lead to inconsistency with regard to the general evaluation frequency.