Published online by Cambridge University Press: 02 January 2018
Why is food regulated separately from, and differently to, other consumer products? This paper attempts to examine the different regimes for the regulation of food and general product safety, and examines the economic, social and cultural reasons for the separation. Finally, the paper considers whether the separate nature of the regimes is necessary, or whether food should be regulated within a ‘product safety’ framework.
Thanks are due to Peter Cartwright, Paul Roberts and the two anonymous reviewers for their very helpful comments on earlier versions of this article. Of course, the usual disclaimer applies.
1. For example, Prosser, T ‘Regulation and social solidarity’ (2006) 33(3) Journal of Law and Society 364 CrossRefGoogle Scholar and Prosser, T The Regulatory Enterprise: Government, Regulation and Legitimacy (Oxford: OUP, 2010).CrossRefGoogle Scholar
2. Paulus, I The Search for Pure Food (London: Martin Robinson, 1974) ch1.Google Scholar
3. Prosser ‘Regulation and social solidarity,’ above n 2, notes at p 364 that ‘market failure’ as a rationale appears to be ‘inadequate either to explain or to normatively justify the range of regulatory tasks currently undertaken’ by regulators.
4. See Simon, J ‘Risk and reflexivity: what socio-legal studies add to the study of risk and the law’ (2005) 57 Alabama Law Review 119.Google Scholar
5. Implemented in the UK by General Product Safety Regulations 2005, r 3.
6. Another product class subject to more onerous regulatory regimes is toys (Directive 2009/48). Similarly, more onerous regulation applies to motor vehicles, and to cosmetics.
7. Paulus, above n 3.
8. Political drivers are returned to below n 94.
9. See Fitzpatrick v Kelly (1873) LR 8 QB 337; Roberts v Egerton (1874) LR 9 QB 494.
10. Paulus, above n 3, pp 39–40.
11. See, inter alia, Regulations 852/2004 and 853/2004.
12. Ogus, Ai Regulation: Legal Form and Economic Theory (Oxford: Hart, 2004) p 151.Google Scholar
13. GPSD art 3(1).
14. GPSD art 2(b).
15. Ogus, above n 13, p 151.
16. See eg Food Standards Agency ‘ Being a world class regulator’ (Report to Board, 20 September 2007), available at http://www.food.gov.uk/multimedia/pdfs/board/fsa070905.pdf (accessed 8 February 2012) sees one of the roles of the agency ‘to intervene to protect consumers where the market is not balanced, not effective, or does not provides proper levels of protection.’
17. Ramsay, I Rationales for Intervention in the Consumer Market Place (London: Office of Fair Trading, 1984) para 3.3.Google Scholar
18. London Economics Consumer Detriment under Conditions of Imperfect Information (OFT Research Article 11) (London: Office of Fair Trading, 1997) p 38.
19. Antle, Jm ‘Economic analysis of food safety’ in Gardner, B and Rausser, G (eds) Handbook of Agricultural Economics Volume 1 (Amsterdam: North Holland Publishing Co, 1999) p 1085. Note lack of information does not equal information asymmetry.Google Scholar
20. See London Economics, above n 19.
21. Henson, S and Traill, B ‘The demand for food safety: market imperfections and the role of government’ (1993) 18 (2) Food Policy 152 at 157. Note that there are certain instances where food safety may be a search good, which means that the safety characteristics can be ascertained by inspection prior to purchase, such as where the product is visibly rotten.CrossRefGoogle Scholar
22. Antle, above n 20, p 1100.
23. See Akerlof, G ‘The market for “lemons”: qualitative uncertainty and the market mechanism’ (1970) 84 Quarterly Journal of Economics 488.CrossRefGoogle Scholar
24. Breyer, S ‘Typical justifications for regulation’ in Baldwin, R, Scott, C and Hood, C (eds) A Reader on Regulation (Oxford: Oxford University Press, 1998) p 68.Google Scholar
25. Henson and Traill, above n 22, p 159.
26. For example, in England and Wales, Disability Living Allowance.
27. Eg a refusal to buy any poultry after an outbreak of avian influenza on one farm.
28. See eg Cranston, R Principles of Banking Law (Oxford University Press: Oxford, 2nd edn, 2002) pp 66–67.Google Scholar
29. Hennessy, Da, Roosen, J and Jensen, Hh ‘Systemic failure in the provision of safe food’ (2003) 28 Food Policy 7781.CrossRefGoogle Scholar
30. For a useful summary see Ogus, above n 13, pp 46–47.
31. Ibid, p 47.
32. Regulation 178/2002 Laying Down the General Principles and Requirements of Food Law, Establishing the European Food Safety Authority and Laying Down Procedures in Matters of Food Safety, Regulation 14(1), breach of which is made the subject of criminal penalty by the General Food Regulations 2004, reg 4(b).
33. Wilhelmsson, T ‘Consumer law and social justice’ in Ramsay, I (ed) Consumer Law in the Global Economy: National and International Dimensions (Aldershot: Ashgate, 1997) pp 222–224. It should be noted however, that Wilhelmsson is also generally supportive of mandatory standards, ‘general rules that make the prevailing standard obligatory’ (p 255).Google Scholar
34. Whitford, Wc The functions of disclosure regulation in consumer transactions (1973) Wisconsin Law Review 400 Google Scholar; Troutt, Dd ‘Ghettoes revisited: antimarkets, consumption, and empowerment’ (2000) 66(1) Brooklyn Law Review 1, particularly at 31–32.Google Scholar
35. See the arguments advanced against distributive regulation by Cayne, D and Trebilcock, Mj ‘Market considerations in the formulation of consumer protection policy’ (1973) 23 University of Toronto Law Journal 396 CrossRefGoogle Scholar, although these have been convincingly challenged by Collins, H Regulating Contracts (Oxford University Press: Oxford, 1999) ch 11.Google Scholar
36. See Paulus, , above n 3, p 36, ‘the protection of the … working class consumer … was given little consideration.’Google Scholar The difficulties for the poor in obtaining products that are as advantageous as better off consumers could obtain are detailed in Caplovitz, D The Poor Pay More: Consumer Practices of Low Income Families (Free Press: New York, 1963).Google Scholar
37. Antle, , above n 20, p 1086.Google Scholar
38. Cartwright, P Consumer Protection and the Criminal Law: Law, Theory, and Policy in the UK (Cambridge University Press: Cambridge, 2001) p 38.CrossRefGoogle Scholar
39. Dworkin, G ‘Paternalism’ in Wasserstrom, Ra (ed) Morality and the Law (Wadsworth: Belmont, 1971) p 108.Google ScholarPubMed
40. See eg Wright, Jd ‘Behavioral law and economics, paternalism, and consumer contracts: an empirical perspective’ (2007) 2 (3) New York University Journal of Law and Liberty 470.Google Scholar
41. See eg Lichtenstein, S etal ‘Judged frequency of lethal events’ (1978) 4 (6) Journal of Experimental Psychology: Human Learning and Memory 551 Google Scholar and Svenson, O ‘Are we all less risky and more skilful than our fellow drivers?’ (1981) 47 Acta Psychologica 143.CrossRefGoogle Scholar
42. Kennedy, D ‘Distributive and paternalistic motives in contract and tort law, with special reference to compulsory terms and unequal bargaining power’ (1982) 41 (4) Maryland Law Review 563 at 563, proposing paternalistic decisions be based on ‘empathy and love.’Google Scholar
43. Ogus, above n 13, p 53.
44. Hanson, Jd and Kysar, Da ‘Taking behaviouralism seriously: the problem of market manipulation’ (1999) 74 New York University Law Review 630 at 662.Google Scholar
45. Kennedy, above n 43, at 627.
46. Howells, G ‘The potential and limits of consumer empowerment by information’ (2005) 32 Journal of Law and Society 349 at 360.CrossRefGoogle Scholar
47. See in general Weinstien, Nd ‘Unrealistic optimism about future life events’ (1980) 39 (5) Journal of Personality and Social Psychology 806.CrossRefGoogle Scholar See further examples of the over optimism bias at work in relation to the chance of divorce ( Baker, La and Emery, Re ‘When every relationship is above average: perceptions and expectations of divorce at the time of marriage’ (1993) 17 Law and Human Behavior 439)CrossRefGoogle Scholar and in people's perception of their driving skills (Svenson, above n 42).
48. Kysar state ‘individuals … underestimate the extent to which a threat applies to them even when they recognise the severity it poses to others’ Hanson and Hanson and Kysar, above n 45, at 657–658.
49. Henson and Traill, above n 22, at 156.
50. Buzby and Frenzen suggest that there are between 6.5 million and 33 million cases of food borne illness in the US each year ( Buzby, Jc and Frenzen, Pd ‘Food safety and product liability’ (1999) 24 Food Policy 637 at 637).CrossRefGoogle Scholar
51. Hanson and Kysar, above n 45, at 657.
52. Ibid, at 662.
53. Henson and Traill, above n 22, at 156.
54. See the differing, competing, definitions of the concept offered by ibid, at 54 and Ramsay, above n 18, pp 99–100.
55. Ramsay, I Consumer Law and Policy: Text and Materials on Regulating Consumer Markets (Oxford: Hart, 2nd edn, 2007) p 99.Google Scholar
56. Antle, above n 20, p 1111.
57. Deakin, S, Johnston, A and Markesinis, B Markesinis and Deakin's Tort Law (Oxford: Clarendon Press, 6th edn, 2008) p 740.Google Scholar
58. 2005 2 SC 1.
59. Deakin, Johnston and Markesinis, above n 58, p 741, and for a general exploration of causation in tort see pp 244–265. For detailed consideration of causation in general see Hart, Hla and Honoré, T Causation and the Law (Oxford: Clarendon Press, 2nd edn, 1984).Google Scholar
60. Barnett v Chelsea and Kensington Hospital [1969] 1 QB 428.
61. The Wagon Mound (No 1) [1961] AC 388.
62. Buzby and Frenzen, above n 51, at 641.
63. Viscusi, Wk ‘Towards a diminished role for tort liability: social insurance, government regulation and contemporary risks to health and safety’ (1989) 6 Yale Journal on Regulation 65 at 69.Google Scholar
64. [2003] 1 AC 32. See also Barker v Corus [2006] 2 AC 572, which restricted the scope of the decision.
65. [2009] PIQR P7 [56]–[64].
66. Coutrelis, N ‘Product liability in the food sector’ (2000) 28 International Business Lawyer 222 at 226.Google Scholar
67. See Martin, R ‘Public health and the scope of potential liability in tort’ (2005) 21 Journal of Professional Negligence 39 at 56–57.Google Scholar
68. Williams, Jm ‘Setting up the variant Cjd trust – operations and lessons for the future’ (2004) Journal of Personal Injury Law 39 at 44.Google Scholar
69. Coutrelis, above n 67, at 224.
70. Woolf, Lord Access to Justice Final Report (London: Lord Chancellor's Department, 1996).Google Scholar
71. See generally Civil Procedure Rules, Part 27, and in particular Part 27.14, which relates to costs.
72. Courts and Legal Services Act 1990, s 58.
73. Jackson, Review of Civil Litigation Costs: Final Report (London: The Stationary Office, 2010).Google Scholar
74. Buzby and Frenzen, above n 51, at 641.
75. Ibid, at 643–644.
76. Leff, Aa ‘Injury, ignorance and spite – the dynamics of coercive collection’ (1970) 80 Yale Law Journal 1 at 21, further noting that enforcement through private litigation is ‘not bloody likely.’CrossRefGoogle Scholar
77. See Civil Procedure Rules Part 19, Section III and Practice Direction – Group Litigation. Lord JusticeJackson, (ed) Civil Procedure Volume I (London: Sweet and Maxwell, 2012) (‘The White Book’) 19.10.0 cites personal injury arising from defective products as an area that could benefit from the use of Group Litigation Orders.Google Scholar
78. Western Canadian Shopping Centres Inc v Dutton [2001] SCR 534 at [27]–[29] per McLachlin CJ. Note however that the facts of cases and the harms caused must be sufficiently similar to allow consideration together.
79. Although see the McDonalds Hot Drinks Group Litigation Order, available at http://www.hmcourts-service.gov.uk/cms/150_552.htm last visited 26 October 2008.
80. Rozin, P ‘Food is fundamental, fun, frightening and far reaching’ (1999) 66 (1) Social Research 9 at 28.Google Scholar
81. Toy Safety Directive, Directive 2009/48/EC Annex II Part V, s 1 provides that ‘toys must be designed and manufactured in such a way as to meet hygiene and cleanliness requirements in order to avoid any risk of infection, sickness or contamination.’
82. See eg Medicines Act 1968.
83. EU Cosmetic Products Regulation 1223/2009, which contains a similar general safety requirement to the General Product Safety Directive, but goes beyond this, governing eg nanomaterials.
84. See eg Medical Devices Regulations 2002.
85. Watson, Jl and Caldwell, Ml ‘Introduction’ in Watson, Jl and Caldwell, Ml (eds) The Cultural Politics of Food and Eating (Malden, MA: Blackwell, 2005) 3 at 3ff noting ‘food everywhere is not just about eating, and eating (at least among humans) is never simply a biological process.’ Similarly, the regulation of food is never simply an economic process.Google Scholar
86. Sinclair, U The Jungle (London: Penguin Classics, 1985).Google Scholar
87. Sinclair quoted in Hillstrom, K and Hillstrom, Lc Industrial Revolution in America: Mining and Petroleum (Santa Barbara, CA: ABC-CLIO, 2006) p 260.Google Scholar
88. See Young, Jh ‘The pig that fell into the privy: Upton Sinclair's the Jungle and the meat inspection amendments of 1906’ (1985) 59 Bulletin of the history of Medicine 467.Google ScholarPubMed
89. See eg ‘Germans quote Sinclair: use statements in “The Jungle” against American meats’ Washington Post (Washington DC, 3 June 1906) p 6.
90. Jordana, J and Levi-Faur, D ‘The politics of regulation in the age of governance’ in Jordana, J and Levi-Faur, D (eds) The Politics of Regulation: Institutions and Regulatory Reform for the Age of Governance (Cheltenham: Edward Elgar 2004) p 9.Google Scholar
91. Echols, Ma ‘Food safety culture in the European Union and the United States: different cultures, different laws’ (1998) 4 Columbia Journal of European Law 525 at 528.Google Scholar
92. Ibid, at 536–537.
93. H-C von Heydebrand und der Lasa notes that ‘consumers have, to one degree or other, certain expectations as to the quality of a foodstuff and they want the government to ensure that their expectations are not frustrated. They expect a certain amount of paternalism.’ ( vonHeydebrand, H-C und derLasa, ‘Free movement of foodstuffs, consumer protection and food standards in the European Community: has the Court of Justice got it wrong?’ (1991) 16 European Law Review 391 at 402).Google Scholar
94. See further Barry, 's discussion of rational paternalism in Barry, Bm Political Argument (New York: Humanities Press, 1965) pp 226–227.Google Scholar
95. Cartwright, above n 39, p 36.
96. Governmental approaches of this sort may be seen from a market perspective as a coordination solution to market failure allowing consumers to benefit from economies of scale and reducing their transaction costs.
97. International Covenant on Economic, Social and Cultural Rights, art 11(1).
98. Article 51 obliges EU institutions to ‘respect the rights, observe the principles and promote the application’ of the Charter.
99. In the late 1990's Commissioner Bonino stated ‘The consumer has a fundamental right to safe food, and I intend to do everything in my power to ensure that this right becomes a reality.’ See ReleasePress ‘ Launching of the “European food safety campaign”’ 15 October 1998, available at http://europa.eu/rapid/pressReleasesAction.do?reference=IP/98/900%26format=HTML%26aged=1%26language=EN%26guiLanguage=en (last visited 28th April 2012).
100. See above n 25, text. Hennessy, Roosen and Jensen, above n 30, at 86 states that without confidence in the market the consequence of a food safety breakdown may be that ‘a whole line of products, whether or not of suspect quality in the eyes of the experts, may be tarred in the marketplace.’
101. Ritvo, H ‘Mad cow mysteries’ in Watson, Jl and Caldwell, Ml (eds) The Cultural Politics of Food and Eating: A Reader (Malden, MA: Blackwell, 2005).Google Scholar
102. Ibid, p 301.
103. See Henson and Traill, above n 22, at 156.
104. Carson, L and Lee, R ‘Consumer sovereignty and the regulatory history of the European market for genetically modified foods’ (2005) 7 (3) Environmental Law Review 173 at 174.CrossRefGoogle Scholar
105. Ritvo, above n 102, p 300. Other examples of confidence building policies from the BSE period detailed by Rivto included banning the sale of certain cuts of beef that included the spinal cord and the widening of the list of by-products of the slaughtering process that could not be reintroduced into the human food chain.
106. Schedule 1A (now repealed and replaced).
107. The Pennington Group Report on the Circumstances Leading to the 1996 Outbreak of Infection with E.coli 0157 in Central Scotland, the Implications for Food Safety and the Lessons to be Learned (Edinburgh: Scottish Office, 1998) para 7.32d.
108. Products that are particularly likely to impact on vulnerable consumers may be regulated beyond the requirements of the General Food Regulations. See eg Directive 2006/141/EC which contains special rules which apply to infant formulae and follow on formulae.
109. Directive 2009/48.
110. Directive 2009/48 Annex II(V)(1).