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Genetic Technology and Food Safety pp 255–285Cite as

Genetic Technology and Food Safety: Country Report – Switzerland

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Part of the book series: Ius Comparatum - Global Studies in Comparative Law ((GSCL,volume 14))

Abstract

In Switzerland, genetic engineering remains a controversial issue. In 1992, an amendment of the Federal Constitution (article 120 FC) added substantial directives to regulate genetic engineering: misuse of gene technology is prohibited and the dignity of living beings must be respected. With regard to the regulation of genetically modified foodstuffs some additional legislation has to be taken into consideration: Article 118 FC (protection of human and animal health) and Article 74 (protection of the environment) as well as several international treaties including agreements between Switzerland and the European Union. The Gene Technology Act (GTA) and the Foodstuff Act (FSA) implement material requirements on safety, on the protection of dignity of living beings, on coexistence including provisions on labelling, on the product flow segregation and on liability, as well as procedural requirements with regard to authorization procedures including the right of appeal. Further concretisations are implemented in several ordinances. Worth mentioning is the moratorium with regard to marketing of GMO, effective until the end of 2017, which, however, does not touch research.

An earlier version is published in: Lukas Heckendorn Urscheler (ed.), Swiss Reports presented at the XIXth International Congress of Comparative Law, Zurich/Basel/Geneva 2014, S. 137 pp.

The following abbreviations are used: Amtliches Bulletin des Ständerats (Official Bulletin of States Council): AB S; Amtliches Bulletin des Nationalrats (Official Bulletin of National Council): AB N; Amtliche Sammlung (Official Collection): AS; Bundesblatt (Federal Bulletin): BBl; Systematische Sammlung (Systematic Collection): SR.

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Notes

  1. 1.

    Cf. Christoph Errass, Öffentliches Recht der Gentechnologie im Ausserhumanbereich, Bern 2006, p. 3.

  2. 2.

    Cf. Errass (FN. 1), p. 21 t seq.

  3. 3.

    AB N 1982 981.

  4. 4.

    Cf. Botschaft zur Volksinitiative „gegen Missbräuche der Fortpflanzungs- und Gentechnologie beim Menschen“ vom 18. September 1989 (Botschaft Missbräuche), in: BBl 1989 III 989 ff. (= Message to the popular initiative “against abuses of reproductive and genetic engineering in humans,” dated 18 September 1989 [Message „abuses“]), in: BBl 1989 III 989.

  5. 5.

    Cf. AB S 1990, p. 477 et seq., 1991, p. 450 et seq.; AB N 1991, p. 556 et seq. On the history cf. Errass (FN 1), p. 22 et seq. On the genesis in the parliamentarian committees cf. Rainer J. Schweizer, in: Aubert/Eichenberger/Müller/Rhinow/Schindler (Hrsg.), Kommentar zur Bundesverfassung der Schweizerischen Eidgenossenschaft vom 29. Mai 1874 (Kommentar aBV), Basel/Zürich/Bern 1987 ff., N 3 et seq. ad Article 24novies; Peter Krepper, Zur Würde der Kreatur in Gentechnik und Recht, Diss. Bern, Basel 1998, p. 350 et seq.

  6. 6.

    BBl 1992 V 451, 456.

  7. 7.

    The old Federal Constitution (oFC; AS 1875 1).

  8. 8.

    The Federal Constitution of the Swiss Confederation of 29 May 1874 was repealed by Number II para. 1 of Federal Decree of 18 December 1998, in: BBl 1999 162.

  9. 9.

    Federal Act on the Protection of the Environment (Environmental Protection Act, EPA) of 7 October 1983 (SR 814.01).

  10. 10.

    Cf. Errass (FN 1), p. 27 et seq.

  11. 11.

    Federal Act on Foodstuffs and Utility Articles (Foodstuffs Act, FSA) of 9th October 1992 (SR 817.0).

  12. 12.

    Cf. Botschaft über die Volksinitiative „zum Schutz von Leben und Umwelt vor Genmanipulationen (Gen-Schutz-Initiative)“ vom 6. Juni 1996 (= Message on the popular initiative “for the protection of life and the environment from genetic engineering [gene protection initiative]” of 6th June 1996), in: BBl 1995 III 1333 et seq.

  13. 13.

    Cf. Errass (FN 1), p. 30 et seq.

  14. 14.

    Cf. Rainer J. Schweizer, Gentechnikrecht. Stand des Gesetzgebungsprozesses zur Gentechnik, Zürich 1996.

  15. 15.

    Gen-Lex-Motion: Motion WBK-N (96.3363). Ausserhumane Gentechnologie. Gesetzgebung, in: AB N 1996, 1561.

  16. 16.

    Cf. Botschaft zu einer Änderung des Bundesgesetzes über den Umweltschutz (USG) vom 1. März 2000 (Botschaft Gen-Lex) (= Message to an amendment of the Environmental Protection Law [EPA] of 1st March 2000 [Message Gen-Lex]), in: BBl 2000 2391 et seq.

  17. 17.

    Federal Act on Non-Human Gene Technology (Gene Technology Act, GTA) of 21 March 2003 (SR 814.91).

  18. 18.

    Cf. Errass (FN 1), p. 33 et seq.

  19. 19.

    Federal Constitution of the Swiss Confederation of 18 April 1999 (SR 101).

  20. 20.

    Cf. Botschaft über die Volksinitiative „für Lebensmittel aus gentechnikfreier Landwirtschaft“ vom 18. August 2004 (Botschaft Moratorium) (= Message on the popular initiative “for foodstuffs from GM-free agriculture” of 18 August 2004 [Message on Moratorium]), in: BBl 2004 4937 et seq.

  21. 21.

    Cf. BBl 2006 1061 et seq.; Errass (FN 1), p. 40 et seq.; Rainer J. Schweizer/Christoph Errass, in: Ehrenzeller/Schindler/ Schweizer/Vallender (ed.), Die schweizerische Bundesverfassung, Kommentar, 3rd edition, Zürich/St. Gallen/Basel/Genf 2014 (St. Galler Kommentar), Art. 120 N 3 et seq.

  22. 22.

    Cf. Art. 197 Ziff. 7 BV Transitional Provision to Article 120 (Non-human gene technology).

    Swiss agriculture shall remain free of gene technology for a period of 5 years following the adoption of this constitutional provision. In particular, the following may neither be imported nor placed on the market:

    1. a.

      genetically modified plants that are capable of propagation, parts of plants and seeds that are intended for agricultural, horticultural or silvicultural use in the environment;

    2. b.

      genetically modified animals that are intended for the production of foodstuffs and other agricultural products.

  23. 23.

    Cf. Art. 37a GTA Transitional period for putting genetically modified organisms into circulation.

    No authorisations may be granted until 27 November 2013 for putting into circulation genetically modified plants and parts of plants, genetically modified seeds and other plant propagation material and genetically modified animals for agricultural, horticultural or silvicultural purposes. The Federal Council issues the required implementing provisions for this period.

  24. 24.

    AB N 2012 1707, 2013 537 und AB S 2012 1219 et seq., 2013 366; BBl 2013 2497, 2521 et seq.

  25. 25.

    For further information cf. Schweizer/Rechsteiner, in: Schweizer/Wildhaber/Rechsteiner, Vorschläge für eine Schweizer Koexistenzordnung, in: Schweizer/Errass/Kohler, Koexistenz der Produktion mit und ohne gentechnisch veränderte Organismen in der Landwirtschaft – Rechtsvergleich sowie Grundlagen und Vorschläge für die künftige Regulierung in der Schweiz, Zürich/St. Gallen 2012, p. 209 et seq., p. 242 et seq. Cf. as well Christoph Errass, Moratorium auf Gesetzesebene für bestimmte Umgangsarten mit bestimmten gentechnisch veränderten Organismen, Kurzgutachten zur verfassungsmässigen Zulässigkeit und Gesetzesvorschlag, Bern 2008, not published, passim.

  26. 26.

    In force since 1st January 2014.

  27. 27.

    Federal Law on Agriculture (LAgr) of 29th April 1998 (SR 910.1).

  28. 28.

    Cf. http://www.srf.ch/news/schweiz/wovor-haben-sie-angst

  29. 29.

    First example: Gen-Lex (cf. Errass [FN 1], p. 33 et seq.); second example: Article 187d LAgr and Article 37a GTA (in the version of 22 March 2013).

  30. 30.

    Two applications were rejected, five approved (cf. http://www.bafu.admin.ch/biotechnologie/01756/08902/index.html?lang=de)

  31. 31.

    Cf. http://www.bafu.admin.ch/biotechnologie/01760/08936/index.html?lang=de: As feed three maize varieties and one soya as well as immune biological medicinal products for veterinary use respectively a vaccine for cats or rather horses.

  32. 32.

    Cf. http://www.blv.admin.ch/themen/04678/04817/04833/04840/index.html?lang=de

  33. 33.

    Cf. Errass (FN 1), p. 5 et seq.; Marcel Brülhart, Gentechnik und Haftpflicht, Bern 2003, p. 5 et seq.

  34. 34.

    Cf. Errass (FN 1), p. 44 et seq.

  35. 35.

    Bundesrat Koller (AB N 1991 599).

  36. 36.

    A comprehensive discussion see Christoph Errass, 20 Jahre Würde der Kreatur, ZBJV 2013, p. 187 et seq.; Errass (FN 1), p. 59 et seq.; Schweizer/Errass (FN 21), N 18 et seq. ad Article 120; Giovanni Biaggini, Kommentar zur Bundesverfassung der schweizerischen Eidgenossenschaft, Zürich 2008, Art. 120 N 6; Jean-François Aubert, in: Aubert/Mahon, Petit commentaire de la Constitution fédérale de la Confédération suisse du 18 avril 1999, Art. 120 N 9.

  37. 37.

    Errass (FN 1), p. 72 et seq.; Schweizer/Errass (FN 21), N 20 et seq. ad Article 120.

  38. 38.

    Errass (FN 1), p. 80 et seq.; Schweizer/Errass (FN 21), N 23 et seq. ad Article 120.

  39. 39.

    Cf. also Astrid Epiney/Bernhard Waldmann/Magnus Oeschger/Jennifer Heuck, Die Ausscheidung von gentechnikfreien Gebieten in der Schweiz de lege lata et de lege ferenda. Unter besonderer Berücksichtigung der Rechtslage in der EU, Zürich/St. Gallen 2011, p. 73 et seq.

  40. 40.

    Cf. Errass (FN 1), p. 48 et seq.

  41. 41.

    Cf. Errass (FN 1), p. 53 et seq.; Schweizer/Errass (FN 21), N 11, 13 ad Article 120.

  42. 42.

    Cf. Errass (FN 1), p. 53 et seq.; Schweizer/Errass (FN 21), N 12 ad Article 120; differing opinion: Epiney/Waldmann/Oeschger/Heuck (FN 39), p. 106.

  43. 43.

    Cf. Errass (FN 1), pp. 238, 243–277.

  44. 44.

    See Tomas Poledna, in: St. Galler Kommentar (FN 21), Art. 118 N 10; Biaggini (FN 36), Art. 118 N 7.

  45. 45.

    See Poledna (FN 44), Art. 118 N 10.

  46. 46.

    See Errass (FN 1), p. 89 et seq.

  47. 47.

    See http://www.reach-info.de/endokrin.htm; EAWAG/BUWAL, Stoffe mit endokriner Wirkung in der Umwelt, Bern 1999; Georg Karlaganis/Christof Studer/Andreas Weber: Xenobiotika mit endokriner Wirkung in der Umwelt. Hysterie oder echte Gefahr?, in: Umweltwissenschaften und Schadstoff-Forschung (UWSF) 1996, 221.

  48. 48.

    Errass (FN 1), p. 94 et seq.; Alain Griffel, Die Grundprinzipien im schweizerischen Umweltrecht, Zürich 2001, 56; Reto Morell/Klaus A. Vallender, in: St. Galler Kommentar (FN 21), Art. 74 N 20 et seq., 28 et seq.

  49. 49.

    See Christoph Errass, Elemente zum Verständnis von Art. 7 GTG. Auslegung des schweizerischen Rechts einschliesslich gewisser völkerrechtlicher Bestimmungen, in: Schweizer/Errass/Kohler (FN 25), p. 107 et seq., 175; Epiney/Waldmann/Oeschger/Heuck (FN 39), p. 82 et seq.

  50. 50.

    International Covenant on Economic, Social and Cultural Rights (SR 0.103.1).

  51. 51.

    Cf. Christine Breining-Kaufmann, Hunger als Rechtsproblem – völkerrechtliche Aspekte eines Rechtes auf Nahrung, Zürich 1991, passim, in relation to Art. 11 UNO Pact I, p. 59 et seq. See also Marco Borghi/Letizia Postiglione Blommestein (eds.), For an effective Right to adequate food, Freiburg 2002; Marco Borghi/Letizia Postiglione Blommestein (eds.), The right to adequate food and access to justice, Geneva/Zürich/Basel/Bruxelles 2006; Christophe Golay/Melik Özden, Le droit à l’alimentation, Geneva 2006; Gregor T. Chatton, Vers la pleine reconnaissance des droits économiques, sociaux et culturels, Geneva/Paris (Dec. 2013), pp. 245, 291–308, see also p. 196 et seq.

  52. 52.

    See Jörg Künzli/Walter Kälin, Die Bedeutung der UNO-Paktes über wirtschaftlichem, soziale und kulturelle Rechte für das schweizerische Recht, in: Kälin/Malinverni/Nowak, die Schweiz und die UNO-Menschenrechtspakte, 2. Aufl., Basel/Frankfurt a.M./Bruxelles, 1997, p. 105 et seq., p. 127 et seq., 133.

  53. 53.

    Differing opinion Künzli/Kälin (FN 52), p. 127.

  54. 54.

    SR 0.910.6.

  55. 55.

    See Errass, Element (FN 49), p. 188 et seq.

  56. 56.

    See Eberhard Schmidt-Assmann, Die Herausforderung der Verwaltungsrechtswissenschaft durch die Internationalisierung der Verwaltungsbeziehungen, Der Staat 2006, p. 315 et seq., p. 321 et seq.

  57. 57.

    Cf. comprehensively Tilman Makatsch, Gesundheitsschutz im Recht der Welthandelsorganisation (WTO). Die WTO und das SPS-Übereinkommen im Lichte von Wissenschaftlichkeit, Verrechtlichung und Harmonierung, Berlin 2004, p. 204 et seq.; Hans Christian Röhl, Internationale Standardsetzung, in: Möllers/Vosskuhle/Walter (eds.), Internationales Verwaltungsrecht, Tübingen 2007, p. 319 et seq., p. 329 et seq.

  58. 58.

    See Makatsch (FN 57), p. 215 et seq.; Röhl (FN 57), p. 331.

  59. 59.

    Appendix 1A.4 of the agreement establishing the world trade organization (SR 0.632.20).

  60. 60.

    See Makatsch (FN 57), p. 218 et seq.; Röhl (FN 57), p. 331; Rudolf Streinz, Rechtliche Aspekte, in: Sturma/Lanzerath/Heinrichts (Hrsg.), Gentechnik in der Lebensmittelproduktion. Naturwissenschaftliche, rechtliche und ethische Aspekte, Freiburg im Breisgau 2011, p. 57 seq., 84.

  61. 61.

    Prot.Cart.; SR 0.451.431.

  62. 62.

    Siehe dazu auch Errass, Elemente (FN 49), p. 185 et seq.

  63. 63.

    See Martin Scheyli, Das Cartagena-Protokoll über die biologische Sicherheit zur Biodiversitätskonvention, ZaöRV 2000, p. 771 et seq., p. 785 et seq.; Mackenzie Ruth/Burhenne-Guilmin Françoise/La Viña Antonio G.M./Werksman Jacob D., in cooperation with Ascencio Alsonso/Kinderlerer Julian/Kummer Katharina/Tapper Richard, An explanatory Guide to the Cartagena Protocol on Biosafty, IUCN Environmental Policy and Law Paper No. 46, Gland/Cambridge 2003, p. 63 et seq.; Katja Loosen, Das Biosafety-Protokoll von Cartagena zwischen Umweltvölkerrecht und Welthandelsrecht, Berlin 2005, p. 6 et seq.

  64. 64.

    See Scheyli (FN 63), p. 785 et seq.

  65. 65.

    See recital 4 (Reaffirming the precautionary approach contained in Principle 15 of the Rio Declaration on Environment and Development) und Art. 11 Abs. 8 Cart.Prot.; Errass, Element (FN 49), p. 186 with further references.

  66. 66.

    Ordinance on the Transboundary Movements of Genetically Modified Organisms of 3rd November 2004 (CartO; SR 814.912.21).

  67. 67.

    Art. 1 CartO.

  68. 68.

    Ordinance on the Handling of Organisms in the Environment of 10th September 2008 (RO; SR 814.911).

  69. 69.

    In more detail see text below under FN 143.

  70. 70.

    See Errass (FN 1), p. 276 et seq.

  71. 71.

    Agreement on technical barriers to trade = Appendix 1A.6 of the agreement establishing the world trade organization (SR 0.632.20).

  72. 72.

    See Bericht über das Ergebnis der EFTA- und WTO-Notifikationen des Entwurfs vom 1. März 2000 zu einer Änderung des Umweltschutzgesetzes vom 30 August 2000 (= Report on results of the EFTA and WTO notifications of the draft of 1 March 2000 on an amendment of the Environmental Protection Act of 30 August 2000), in: BBl 2000 5029.

  73. 73.

    See text above at FN 25.

  74. 74.

    Cf. Message on Moratorium (FN 20), p. 4937, 4948 et seq.; Botschaft zur Änderung des Gentechnikgesetzes (Verlängerung des GVO-Moratoriums in der Landwirtschaft [Botschaft Moratorium]) vom 1. Juli 2009 (= Message on the amendment of the Genetic Engineering Act [extension of the moratorium on GMOs in agriculture (Message on Extension)] of 1 July 2009), in: BBl 2009 5435, p. 5458 et seq.

  75. 75.

    SR 0.632.20.

  76. 76.

    See Message on Extension (FN 74), 5458.

  77. 77.

    See Streinz (FN 60), p. 85.

  78. 78.

    Thereto Loosen (FN 63), passim; Jan Neumann, Die Koordination des WTO-Rehts mit anderen völkerrechtlichen Ordnungen, Berlin 1994, p. 112 et seq., in particular p. 250 et seq. (Cart.Prot.).

  79. 79.

    See Arno Scherzberg, Risikomanagement vor der WTO. Zum jüngsten Handelsstreit zwischen der Europäischen Union und den Vereinigten Staaten über den Umgang mit gentechnisch veränderten Organismen, ZUR 2005, pp. 1, 7–8 with further references; Matthias Herdegen, Informalisierung und Entparlamentarisierung politischer Entscheidungen als Gefährdungen der Verfassung?, VVDStRL 62 (2003), p. 7 et seq., p. 24 et seq.

  80. 80.

    See Stephan Breitenmoser/Robert Weyeneth, Europarecht. Unter Einbezug des Verhältnisses Schweiz – EU, 2. Aufl. Zürich/St. Gallen 2014, p. 179 et seq.

  81. 81.

    SR 0.632.401.

  82. 82.

    In detail and with further references Urs Klemm/Dirk Trüten, Regelungsrahmen im Schweizer Lebensmittelrecht, in: Weber/Klemm/Baumgartner/Uebe/Trüten, Lebensmittelrecht EU – Schweiz, edition 2012, p. 136 et seq., p. 158 et seq.; Rudolf Streinz, Die Europäisierung des Lebensmittelrechts unter Berücksichtigung der Auswirkungen auf die Schweiz, in: Poledna/Arter/Gattiker (ed.), Lebensmittelrecht, Bern 2006, p. 151 et seq., 200.

  83. 83.

    SR 0.632.401.2.

  84. 84.

    Thereto Breitenmoser/Weyeneth (FN 80), p. 170 et seq.

  85. 85.

    On the European law in relation to genetically modified food see Streinz (FN 60).

  86. 86.

    Article 16 para. 2 and Article 17 para. 6 GTA for example that apply in particular to food refer on the international recommendations and foreign trade relations, meaning according to the parliamentarian debate the EU law (see Errass [FN 1], p. 185 FN 969, p. 288). See also Streinz, Europäisierung (FN 82), p. 200 et seq., 210.

  87. 87.

    See Message on Extension (FN 74), 5459; Message on Moratorium (FN 20), 4950.

  88. 88.

    For a survey see Breitenmoser/Weyeneth (FN 80), p. 171 et seq.

  89. 89.

    For a survey see Breitenmoser/Weyeneth (FN 80), p. 184 et seq.

  90. 90.

    See also Streinz, Europäisierung (FN 82), p. 201 et seq.; Tobias Jaag, Europarecht. Die europäischen Institutionen aus schweizerischer Sicht, 3rd edition, Zürich 2010, p. 404 et seq.

  91. 91.

    Agreement between the Swiss Confederation and the European Community on mutual recognition of conformity assessments of 21 June 1999 (SR 0.946.526.81).

  92. 92.

    Agreement between the Swiss Confederation and the European Community on trade with agricultural products of 21 June 1999 (SR 0.916.026.81). Thereto Richard Senti, Abkommen über den Handel mit landwirtschaftlichen Erzeugnissen, in: Thürer/Weber/Zäch (eds.), Bilaterale Verträge Schweiz – EU. Ein Handbuch, Zürich 2002, p. 579 et seq.; Richard Senti, Abkommen über den Handel mit landwirtschaftlichen Erzeugnissen, in: Thürer/Weber/Portmann/Kellerhals (eds.), Bilaterale Verträge I & II Schweiz – EU. Ein Handbuch, Zürich 2007, p. 731 et seq.; Jaag (FN 90), 421.

  93. 93.

    See Klemm/Trüten (FN 82), p. 154 et seq.; Streinz, Europäisierung (FN 82), p. 201 et seq.

  94. 94.

    See Streinz, Europäisierung (FN 82), p. 202; Klemm/Trüten (FN 82), p. 155 et seq.

  95. 95.

    Agreement between the Swiss Confederation and the European Community on the amendment of the Agreement between the Swiss Confederation and the European Economic Community of 22 July 1972 as regards the provisions applicable to processed agricultural products of 26 October 2004 (SR 0.632.401.23). Thereto Richard Senti, Abkommen über landwirtschaftliche Verarbeitungserzeugnisse, in: Thürer/Weber/Portmann/Kellerhals (eds.), Bilaterale Verträge I & II Schweiz – EU. Ein Handbuch, Zürich 2007, p. 789 et seq.; Jaag (FN 90), p. 421 et seq.

  96. 96.

    See Streinz, Europäisierung (FN 82), p. 203.

  97. 97.

    See Klemm/Trüten (FN 82), p. 140, 142; Tomas Poledna, Inverkehrbringung von Lebensmitteln und Lebensmittelkontrolle, in: Poledna/Arter/Gattiker (FN 82), p. 50 et seq.; see also Judgement of the Federal Court 2A.565/2000 of 8 May 2001 considerations 4a et seq.

  98. 98.

    See Poledna, (FN 97), p. 52 et seq.

  99. 99.

    See Article 2 para. 1 FSA.

  100. 100.

    See Beatrice Wagner Pfeifer, Grundzüge des Lebensmittelrechts, in: Poledna/Arter/Gattiker (FN 82), p. 21 et seq., p. 23 et seq.; Poledna (FN 97), p. 41 et seq., 46 et seq., 50 et seq.

  101. 101.

    See in detail Poledna (FN 97), p. 54 et seq.

  102. 102.

    Read more below.

  103. 103.

    THG; SR 946.51.

  104. 104.

    Cf. Errass, Elemente (FN 49), p. 114 et seq., 116 et seq.; Errass (FN 1), p. 136 et seq.

  105. 105.

    Article 4 GTA reproduces Article 3 para. 1 EPA (Stricter provisions of other Federal laws shall not be prejudiced), which is not surprising since the GTA emerged from the EPA (see Errass [FN 1], p. 33 et seq., 113 et seq.; Errass, Elemente [FN 49], p. 123).

  106. 106.

    Cf. Kommission für Wissenschaft, Bildung und Kultur des Ständerates: Bericht vom 30. April 2001, in: AB S 2001, Beilagen Sommersession (= Parliamentarian Committee of Senate for Science, Education and Culture: Report of 30 April 2001, in: AB S 2001, Annexes summer session), p. 22, 23; Errass (FN 1), p. 120.

  107. 107.

    See Errass (FN 1), p. 120; as well Hansjörg Seiler, Kommentar zum Umweltschutzgesetz (ed. by Vereinigung für Umweltrecht and Helen Keller), 2nd edition, 7th delivery, Zürich 2003, Article 3 N 25.

  108. 108.

    See Errass (FN 1), p. 120.

  109. 109.

    See Errass (FN 1), p. 126 et seq., 255. Nothing is changed by the inclusion of the precautionary principle in the FSA (see Message on the Federal Law on Foodstuffs and Utility Articles of 25 May 2011 (Botschaft LMG 2011), in: BBl 2011 5571, 5612 und 5670 [Art. 22 E-LMS]), since the FSA is not more stringent than the GTA.

  110. 110.

    See Errass (FN 1), p. 127. It seems that experts on foodstuffs law are not aware of Article 4 GTA (e.g. Rolf H. Weber, Bedeutung und Regelungsgegenstände des Lebensmittelrechts, in: Weber/Klemm/Baumgartner/Uebe/Trüten [FN 82], p. 19 et seq., p. 35 et seq.; Klemm/Trüten (FN 82), p. 139, 140 et seq.; Poledna [FN 97], p. 42, 48).

  111. 111.

    See Errass (FN 1), p. 170 et seq.

  112. 112.

    See Errass (FN 1), p. 171 et seq., p. 176 et seq.

  113. 113.

    See Errass, Elemente (FN 49), passim.

  114. 114.

    See Errass, Würde (FN 36), passim.

  115. 115.

    See Errass (FN 1), p. 155.

  116. 116.

    See Errass (FN 1), p. 146 et seq.; Errass, Würde (FN 36), p. 219 et seq.

  117. 117.

    In detail: Errass (FN 1), p. 141 et seq., 243; Errass, Elemente (FN 49), p. 117; Epiney/Waldmann/Oeschger/Heuck (FN 39), p. 112, 186 FN 732.

  118. 118.

    Exceptions: Article 14 GTA (see Errass (FN 1), p. 193 et seq.

  119. 119.

    On ECNH see http://www.ekah.admin.ch/en/index.html; Errass (FN 1), p. 201 et seq.; Errass, Würde (FN 36), p. 192 et seq. FN 27.

  120. 120.

    On FCBS see Errass (FN 1), p. 196 et seq.

  121. 121.

    Both committees have, in addition, the mandate to advise on legislation (Article 22 para. 2 and Article 23 para. 3 lit. a GTA respectively).

  122. 122.

    FUO; SR 817.02.

  123. 123.

    SR 916.151.

  124. 124.

    See also for foodstuffs without genetically modified organism art. 7 FSA.

  125. 125.

    See Errass (FN 1), p. 84 et seq.

  126. 126.

    See Message on Extension (FN 74), 5448.

  127. 127.

    See Christoph Errass, Honig mit gentechnisch veränderten Pollen: Ein Urteil des EuGH und die Folgen für die Schweiz, Jusletter 17. Oktober 2011, Rz. 10 FN 46; see also Errass, Elemente (FN 49), p. 171.

  128. 128.

    Article 9 GTA Genetic modification of vertebrates

    Genetically modified vertebrates may only be produced and put into circulation for purposes of research, therapy, or diagnostics in human or veterinary medicine.

  129. 129.

    See Message on Extension (FN 74), 5449.

  130. 130.

    See Errass (FN 1), p. 260 et seq.

  131. 131.

    See ECNH, Opinion of 19 February 2013 (in German): Koexistenzregelung: Änderung des Bundesgesetzes über die Gentechnik im Ausserhumanbereich, GTG (Vernehmlassungsentwurf vom 30. Januar 2013) und Verordnung über Koexistenzmassnahmen beim Anbau von gentechnisch veränderten Pflanzen sowie beim Umgang mit daraus gewonnenem Erntegut, Koexistenzverordnung, KoexV (Vernehmlassungsentwurf vom 15. Januar 2013), p. 7 et seq.

  132. 132.

    Comprehensively cf. Errass, Elemente (FN 49), passim; Schweizer/Wildhaber/Rechsteiner (FN 25), passim.

  133. 133.

    See Errass, Elemente (FN 49), p. 161 et seq.; Schweizer/Wildhaber/Rechsteiner (FN 25), passim.

  134. 134.

    According to Schweizer/Rechsteiner, in: Schweizer/Wildhaber/Rechsteiner (FN 25), p. 259, the only possible coexistence measure for the production of GM free honey and GM free seeds and seedlings.

  135. 135.

    Cf. Schweizer/Rechsteiner, in: Schweizer/Wildhaber/Rechsteiner (FN 25), p. 257 et seq.; Epiney/Waldmann/Oeschger/Heuck (FN 39), passim; Errass, Honig (FN 127), Rz. 11.

  136. 136.

    See Epiney/Waldmann/Oeschger/Heuck (FN 39), p. 73 et seq. (Fazit), p. 108 et seq.; implicitly also Schweizer/Rechsteiner, in: Schweizer/Wildhaber/Rechsteiner (FN 25), p. 257 et seq.

  137. 137.

    Similar regulations exist for so called quarantine organisms (see Plant Protection Ordinance of 28 February 2001 [SR 916.20]).

  138. 138.

    See Errass, Honig (FN 127), Rz. 10 f.

  139. 139.

    See Errass, Honig (FN 127), Rz. 11; Schweizer/Rechsteiner, in: Schweizer/Wildhaber/Rechsteiner (FN 25), 258 Rz. 133.

  140. 140.

    See Errass (FN 1), p. 243.

  141. 141.

    See in text above at FN 130.

  142. 142.

    See e contrario Article 14 para. 1 i.f. GTA.

  143. 143.

    Ordinance of the FDHA about genetically modified foodstuffs of 23 November 2005 (SR 817.022.51).

  144. 144.

    See Article 26 RO.

  145. 145.

    To the former law, whose content is still valid nevertheless see Errass (FN 1), p. 251.

  146. 146.

    Directive 2001/18/EC of the European Parliament and of the Council of 12 March 200144 on the deliberate release into the environment of genetically modified organisms and repealing Council Directive 90/220/EEC (ABl. L 106 of 17.4.2001, p. 1).

  147. 147.

    Article 4 OGMF is wrong: Each Federal authority examines independently the requirements according to the decrees it is responsible for (see Article 44 para. 1 lit. d RO; Article 22 para. 3 FUO). Each authority has its own expertise and evaluates the application accordingly. The FSVO is not competent to provide a wholesale evaluation as little as other Federal Offices are not competent to assess the FSVO’s evaluation (cf. Errass [FN 1], p. 256).

  148. 148.

    See Errass (FN 1), p. 198.

  149. 149.

    See Errass (FN 1), p. 201 et seq.

  150. 150.

    Errass (FN 1), p. 204 et seq.

  151. 151.

    See Christoph Errass, Zur Notwendigkeit der Einführung einer Popularbeschwerde im Verwaltungsrecht, AJP 2010, p. 1351 et seq., 1364; Christoph Errass, Recht als Risiko für die Sicherheit oder Sicherheit als Risiko für das Recht, Sicherheit & Recht 2010, p. 24 et seq., 29 with further references, p. 31 et seq. with additional references on gene technology; Burkard Wollenschläger, Wissensgenerierung im Verfahren, Tübingen 2009, passim.

  152. 152.

    See BGE 123 II 376, pp. 380 f. E. 4b/bb i.f.; discerning Errass, Popularbeschwerde (FN 151), p. 1356 in conjunction with p. 1361 et seq. and in particular 1364; see also Isabelle Häner, Die Beteiligten im Verwaltungsverfahren und Verwaltungsprozess, Zürich 2000, Rz. 726, 748.

  153. 153.

    See Article 28 GTA: National environmental protection organisations only have a right of appeal against authorisations for putting into circulation of GMO, if genetically modified are intended for use in the environment. This does not include the handling of therapeutic GM products, foodstuffs and animal feedstuffs (Article 3 para. 1 lit. j RO).

  154. 154.

    See Nikolaus Wenk/Daniela Stebler/Regula Bickel (Europäisches Zentrum für Wirtschaftsforschung und Strategieberatung prognos, Warenflusstrennung von GVO in Lebensmittel, Untersuchung im Auftrag des BAG, Endbericht, Basel 2001).

  155. 155.

    See below ch. IV.

  156. 156.

    When passing regulations on product flow segregation and on measures to prevent contamination, the Federal Council shall take account of international recommendations and foreign trade relations (Article 16 para. 2 sentence 2 GTA). It has thereby followed closely the following (two) Regulation (EC) No 1829/2003 of the European Parliament and of the Council of 22 September 2003 on genetically modified food and feed and the Regulation (EC) No 1830/2003 of the European Parliament and of the Council of 22 September 2003 concerning the traceability and labelling of genetically modified organisms and the traceability of food and feed products produced from genetically modified organisms and amending Directive 2001/18/EC (see Errass [FN 1], p. 258).

  157. 157.

    He must indicate that it is or contains GMO; in addition, the GMO has to be named, which has been recognized by unique identifier according to the Commission regulation (EC) No 65/2004 of 14th January 2004 establishing a system for the development and assignment of unique identifiers for genetically modified organisms (ABl. L 10 of 16th January 2004 pp. 5 ff.) (Article 8 para. 1 and 2 OGMF).

  158. 158.

    See Errass (FN 1), p. 193.

  159. 159.

    See also Wildhaber, Ungewollte Auskreuzungen und die Schwellenwerts-Debatte im Gentechnikrecht, AJP 2009, p. 849 ff., 857.

  160. 160.

    See http://www.blv.admin.ch/themen/04678/04817/04833/04841/index.html?lang=de

  161. 161.

    Exception: when agricultural crops may be placed on the market directly (i.e. without processing).

  162. 162.

    See Errass (FN 1), p. 282 et seq.

  163. 163.

    See Errass (FN 1), p. 286 und above.

  164. 164.

    See text above after footnote 158.

  165. 165.

    This would be the case even if the contamination were in parts per thousand.

  166. 166.

    See Errass (FN 1), p. 287 et seq.

  167. 167.

    See Errass (FN 1), P. 288.

  168. 168.

    GMO products are food, food additives, or processing aids that are or contain genetically modified organisms, are derived from GMOs or from crossings of different GMOs or are GMO hybrids (see Article 2 OGMF).

  169. 169.

    Examples can be found on: http://www.blv.admin.ch/themen/04678/04817/04833/04837/index.html?lang=de

  170. 170.

    Ordinance on organic farming and the labelling of organic products and foods of 22 September 1997 (SR 910.18).

  171. 171.

    See Judgement of the Federal Court 2A.357/2002 of 13 February 2003, considerations 3 and 4.

  172. 172.

    Cf. Daniel Dédeyan, Macht durch Zeichen, Rechtsprobleme der Kennzeichnung und Zertifikation, Baden-Baden/Zürich/Basel/Genf, 2004, P. 150.

  173. 173.

    On possibly competing claims see e.g. Christian Hediger, Die Haftungsbestimmungen des Gentechnikgesetzes (Art. 30–34 GTG). Beurteilung und Vergleich mit der Haftungsregelung des deutschen Gentechnikgesetzes, Zürich 2009, p. 128 et seq., 153, 176 et seq.

  174. 174.

    On the functions of liability: Brülhart (FN 33), p. 108 et seq.

  175. 175.

    See Errass (FN 1), p. 35 et seq., 38.

  176. 176.

    See inter alia Monika Gattiker, Haftung im Umgang mit Lebensmittel, in: Poledna/Arter/Gattiker (FN 82), p. 71 et seq., 78; Christian Hediger, Gentechnikschäden: Hilft das Gentechnikgesetz dem Geschädigten?, HAVE 2009, p. 229 et seq.; Hediger, Haftungsbestimmung (FN 173), p. 78 et seq.; Walter Fellmann, Bauernprivilegien im Haftpflichtrecht – ein Anschlag auf die Schadensprävention!, in: Schmid/Seiler (eds.), Recht des ländlichen Raums – Festgabe für Paul Richli zum 60. Geburtstag, Zürich 2006, p. 129 et seq.; Markus Schott, Gentechnologie in Landwirtschaft und Lebensmittelproduktion nach Inkrafttreten des neuen Gentechnikgesetzes, ZSR 2004 II, p. 435 et seq., 459; see also Alain Griffel/Heribert Rausch, Kommentar zum Umweltschutzgesetz, Ergänzungsband zur 2. Aufl., Zürich 2011, p. 877 et seq., in particular p. 896 et seq. on parallel provisions concerning but the pathogenic organisms of Article 59abis EPA.

  177. 177.

    See Hediger, Haftungsbestimmung (FN 173), p. 106 et seq.

  178. 178.

    See Hediger, Haftungsbestimmung (FN 173), p. 112 et seq.

  179. 179.

    Given the risks immanent to genetic engineering the legislator could have been stricter (cf. Hediger, Haftungsbestimmung [FN 173], p. 124 et seq.).

  180. 180.

    Cf Hediger, Haftungsbestimmung (FN 173), p. 123 et seq.

  181. 181.

    See instead of all Hediger, Haftungsbestimmung (FN 173), P. 94 with further references.

  182. 182.

    See instead of all Hediger, Haftungsbestimmung (FN 173), p. 94 et seq., 98 et seq., 100 et seq.

  183. 183.

    See also Felix Schöbi, Der Umgang des Gesetzgebers mit Umweltschäden, URP 2009, p. 463 et seq.

  184. 184.

    See Hediger, Haftungsbestimmung (FN 173), p. 183 et seq.; Griffel/Rausch (FN 176), p. 891 et seq. on parallel provisions for pathogenic organisms (Art. 59abis Abs. 9 EPA).

  185. 185.

    See Hediger, Haftungsbestimmung (FN 173), p. 102 et seq.

  186. 186.

    See Hediger, Haftungsbestimmung (FN 173), p. 188 et seq.

  187. 187.

    See Markus Müller-Chen, Haftung für durch gentechnisch veränderte Organismen verursachte Schäden nach Art. 30 ff. Gentechnikgesetz, in: Sutter-Somm et. al. (Hrsg.), Risiko und Recht – Festgabe zum Schweizerischen Juristentag 2004, Basel/Bern 2004, p. 151 et seq., 160; Hediger, Haftungsbestimmung (FN 173), p. 132 et seq. in conjunction with 159; see also Griffel/Rausch (FN 176), p. 888 on parallel provisions on pathogenic organisms (Article 59abis para. 4 EPA).

  188. 188.

    In more detail Hediger, Haftungsbestimmung (FN 173), p. 161 et seq.

  189. 189.

    Thereto Errass (FN 1), p. 244.

  190. 190.

    See also Hediger, Haftungsbestimmung (FN 173), p. 168; wrong: Gattiker (FN 176), p. 79 et seq.

  191. 191.

    Additional problems see Hediger, Haftungsbestimmung (FN 173), p. 158 et seq. in conjunction with p. 81 et seq.

  192. 192.

    Cf. e.g. Annex 2 OGMF.

  193. 193.

    To the different problems with the regulation see Hediger, Haftungsbestimmung (FN 173), p. 81 et seq.

  194. 194.

    Thereto Hans Rudolf Trüeb, in: Keller/Vereinigung für Umweltrecht (Hrsg.), Kommentar zum Umweltschutzgesetz, 2. Aufl. Zürich 2004, passim ad Art. 59a; Griffel/Rausch (FN 176), p. 867 et seq.

  195. 195.

    Griffel/Rausch (FN 176), p. 869 et seq.; see also Schöbi (FN 183), p. 477 et seq.

  196. 196.

    Hediger, Gentechnikschäden (FN 176), passim, and comprehensively Griffel/Rausch (FN 176), p. 897 et seq.

  197. 197.

    Quoted according to Griffel/Rausch (FN 176), p. 897 Rz. 43 i.f.

Acknowledgment

I would like to thank Ariane Willemsen, lic. iur., M.A. (Philosophy; Guelph/CA) for the discussion, the critical review of the draft and the translation, and Eleanor McGregor, dr en droit, avocate, for the critical review of the translation.

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    Christoph Errass

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    Roland Norer

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Errass, C. (2016). Genetic Technology and Food Safety: Country Report – Switzerland. In: Norer, R. (eds) Genetic Technology and Food Safety. Ius Comparatum - Global Studies in Comparative Law, vol 14. Springer, Cham. https://doi.org/10.1007/978-3-319-23995-8_8

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