产 标准 认证和合格评定 场准入标准 认证和合格评定 引言 中国在 十二五 规划中仍旧从技术和监管角度强调标准制定的重要性, 通过国家财政拨款及制定工作计划, 支持战略产业本土技术标准的制定 中国标准化体系建设在新标准制定与现有标准修订和实施两个方面继续迅速推进 2012 年 12 月, 中国国家标

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1 Standards, Certification, and Conformity Assessment Introduction China continues to place emphasis on standards development from a technical as well as regulatory standpoint under the 12 th Five-Year Plan, allocating state funds and devising work plans for the development of indigenous Chinese technical standards in strategic sectors. The standardization system continues to grow rapidly, both in terms of the development of new standards and the revision and implementation of existing ones. China s Standards Second Batch Work Plan for 2012, announced by the Standardization Administration of China (SAC) in December 2012, stated that SAC has approved work to begin on the development or revision of 758 standards. AmCham China welcomes positive developments with regard to China s standardization system, including increased participation by foreign-invested enterprises (FIEs) in standards development and increased transparency in the standards notification and development process. Despite this progress, China s standards system still imposes a number of barriers to market entry that remain a concern. In order of significance, these include: 1. the inability of US testing organizations to obtain accreditation and carry out testing in China for all areas; 2. China s refusal to accept US-initiated standards and advanced technical standards as international standards; 3. the inability of FIEs to fully participate in all phases of China s commercial standards development; and 4. inconsistency in providing full transparency across all standards development and implementation processes. To address these issues, a cooperative approach would benefit both the US and China, as creating a strong standards system in China would help regulate the market and promote the development of advanced technology. To that end, AmCham China proposes increasing cooperation between US industry and their Chinese government and industry counterparts to promote the further integration of China into the international standards-setting process. China s adoption of internationally-accepted standards and its acceptance of foreign testing organizations would not only benefit China s innovation, but would also help China attract greater foreign investment and research and development, and advance the acceptance of Chinese-developed standards internationally. Ongoing Regulatory Issues Follow-through on Commitment Towards Qualified non-chinese Testing Organizations At the 23 rd US-China Joint Commission on Commerce and Trade (JCCT) in December 2012, China agreed to provide equal treatment to eligible foreign-invested testing and certification entities registered in China for carrying out testing for China Compulsory Certificates (CCC). For years China has restricted this type of work solely to Chinese testing organizations. For example, US third party testing bodies could act as an agent to facilitate applications for customers seeking CCC testing for the China market. This meant they could make sure that all documentation was in compliance with the related certification requirements and coordinate with local accredited testing labs and certification bodies on behalf of their manufacturing customers. However, they were prevented from performing related tests or issuing the related mark or approval. China s agreement to reverse this policy is a promising first step, and AmCham China hopes China will follow through quickly with implementing this commitment to provide national treatment to all conformity assessment bodies on CCC testing and will also expand equal treatment to other testing areas. Recognition and Adoption of International Standards Partial harmonization of international and Chinese standards remains a serious concern for many foreign companies in China. In particular, SAC still refuses to officially recognize the standards of US-based standards development organizations (SDOs) as international standards, although these SDO standards meet all WTO requirements and are globally accepted as de facto international standards. In contrast, SAC does officially recognize standards issued by the International Organization of Standardization (ISO), International Electrotechnical Commission (IEC), International Telecommunications Union (ITU), and some other ISO-recognized bodies. 86

2 产 标准 认证和合格评定 场准入标准 认证和合格评定 引言 中国在 十二五 规划中仍旧从技术和监管角度强调标准制定的重要性, 通过国家财政拨款及制定工作计划, 支持战略产业本土技术标准的制定 中国标准化体系建设在新标准制定与现有标准修订和实施两个方面继续迅速推进 2012 年 12 月, 中国国家标准化管理委员会 ( 国标委 ) 公布了中国第二批国家标准工作计划, 称国标委已经批准启动 758 项标准的制 修订工作 2012 年中国标准化体系取得了积极进展, 这些进展主要体现在外商投资企业 ( 外资企业 ) 对标准制定参与度的提高, 以及标准通报和制定过程透明度的增加, 中国美国商会对此表示欢迎 尽管如此, 中国的标准体系为市场准入施加的诸多障碍仍令人担忧 按照重要性排列, 这些障碍包括如下几个方面 : ( 一 ). 美国检测机构不能获得资格认可, 因而不能在中国开展检测业务 ; ( 二 ). 中国拒绝认可美国发起制定的标准和先进技术标准为国际标准 ; ( 三 ). 外资企业不能充分参与中国商业标准制定的所有阶段 ; ( 四 ). 在所有标准制定和实施过程中不能始终保持完全透明 采取合作的方式处理上述问题将有益于中美两国, 因为在中国建立完善的标准体系将有助于对市场的监管, 而且能促进先进技术的开发 为此, 中国美国商会建议加强美国业界与中国政府及中国业界的合作, 以推动中国进一步融入国际标准制定体系的进程 中国采用国际公认标准并认可国外的检测机构, 将不仅有益于中国的创新, 而且也将有助于中国吸引更多的外国投资和技术研发, 使中国 制定的标准得到国际认可 现存监管问题充分履行有关符合条件的非中资检测机构的承诺 在 2012 年 12 月举行的第 23 届美中商贸联委会 (JCCT) 上, 中国同意在开展中国强制性产品认证 (CCC) 检测业务上给予在华注册的合格外资检测认证机构平等待遇 此前很多年中国一直将强制性产品认证检测业务仅限于由中资检测机构承担, 而美国第三方检测机构仅可以作为 代理人, 帮助客户在中国市场申请 CCC 认证 这意味着美国检测机构只能在代表客户确保所有的申请文件全部符合相关认证要求并负责与当地已经认可的检测机构和认证机构进行沟通协调方面提供服务, 但不得直接检测 发放相关标志或出具核准证书 现在中国同意改变这一政策是可喜的第一步 中国美国商会希望中国能够尽快履行此承诺, 给予从事中国强制性产品认证检测业务的所有合格评定机构以同等的国民待遇, 并将这一平等待遇扩展至其他检测领域 国际标准的认可和采用 中国标准与国际标准的不完全接轨仍然是很多在华外国企业面临的严重问题 特别是国标委仍拒绝正式认可设在美国的标准制定组织制定的标准是国际标准, 尽管这些标准符合世界贸易组织的所有要求并且在全球范围内被接受为国际标准 相反, 国标委却正式认可国际标准化组织 (ISO) 国际电工技术委员会(IEC) 和国际电信联盟 (ITU) 以及部分 ISO 认可的其他机构制定的标准为国际标准 除了不完全认可设在美国的标准制定组织制定的标准为国际标准, 中国许多标准委员会仍继续拒绝承认其他一些国际普遍认可的标准 ( 如所谓的 外国先进标准 ) 为国际标准 相反, 他们通过零散地借鉴和吸收各种现有国 业政策和市 AmCham China 2013 White Paper 87

3 In addition to this partial recognition of US-based SDO-issued standards, many Chinese standards committees continue not to recognize some other internationally accepted standards (e.g., so-called foreign advanced standards ). Instead they create unique Chinese versions by fragmentary adoption and extraction of the various existing international standards. The development of such unique Chinese standards is duplicative and creates a trade barrier that not only restricts entry into China of technology and products developed by multinational corporations, but also hinders the export of Chinese technology and products to the global market. From a practical point of view, no individual or group of SDOs can singularly lead standards development for the innumerable technologies and applications in the global market. Each SDO has its unique advantages and plays a specific role in the global economy. Furthermore, as is well known in the global market, it is the content of a standard that matters, not the label of the standard developer. Therefore, the decision to adopt a standard should remain focused on the principles and due process of standard development, particularly the technical quality and market relevance of the standard, as accepted by users in the marketplace. Regulators should be open to all existing SDOs, including those that are US-based and are globally recognized. Recognition of global SDOs would promote the competitiveness of Chinese technologies and products in the global marketplace. AmCham China strongly urges China to officially broaden its recognition of international SDOs beyond ISO, IEC, and ITU to any organization which follows the WTO Technical Barriers to Trade (WTO/TBT) principles of transparency, openness, impartiality and consensus, relevance and effectiveness, coherence, and incorporation of developing country interests as detailed in WTO G/TBT/1/Rev.8. AmCham China is confident that US SDOs meet these qualifications. Participation of Foreign-Invested Enterprises in Standards Setting SAC regulations state that FIEs registered in China are qualified to join Chinese national standards committees or working groups, and to participate and vote in the drafting of China s standards. However, to date, this mandate remains inconsistently applied. The decision whether or not to allow participation by FIEs is in practice left to individual technical committees (TCs) and technical subcommittees (SCs), even though TCs and SCs fall under SAC authority. Some TCs and SCs do not permit FIEs to participate in the drafting of standards and technical regulations at all. Others permit FIEs as voting members, and some offer FIEs the right to participate on a limited observer status without voting rights. These restrictions are not only unfair, but are also inconsistent with the SAC principle of permitting FIEs to participate in the formulation and drafting of standards. SAC should provide guidance to all standards committees and working groups to ensure they permit FIEs to join and participate as full voting members in all TCs and SCs, with the same opportunities to participate in the committees work plans and standards drafting process. China should also solicit suggestions and opinions from members of global enterprises while drafting standards, which would in turn lead to Chinese standards having a better chance of being accepted in the global marketplace. Mandatory Voluntary Standards Regimes Different ministries or authorities sometimes have different enforcement procedures on standards or regulations, including voluntary standards. In some circumstances, voluntary standards are adopted as the technical criteria in regulations and certifications, thereby essentially turning them into mandatory standards. However, unlike mandatory standards, there is no notification procedure that informs businesses of these voluntary standards being incorporated into regulations or certifications prior to their enforcement. A transparent notification process for when mandatory requirements are adopted from voluntary standards before they are enforced would allow companies to better adapt to changes in Chinese regulations. To achieve this, AmCham China suggests that China require such standards to be reviewed and notified for comment by SAC per their normal procedures. This would avoid confusion on the roles and responsibilities of the various government authorities involved, provide industry with opportunities to provide important and positive feedback, and help clarify what requirements are being mandated and how they will be enforced. Transition Periods Following Standards Adoption The China-US JCCT Pharmaceuticals and Medical Devices Subgroup Information Exchange Program Workshop on International Standards for Medical Equipment took place September 18-19, 2012 in Beijing. There was a great deal of discussion about differences between how the US, Europe and China manage the launch of new standards and the transition to new editions of standards. Specifically, the third edition of IEC was brought online in the US and Europe with a three-year transition period. Meanwhile in China, since IEC is part of the country s mandatory (legal) regulations, any changes to the standard would apply overnight under Chinese legal requirements. AmCham China therefore recommends that China allow longer transition periods when adopting standards. Environmental Standards Chinese government agencies at times develop multiple environmental standards on a single issue simultaneously. This leads to inconsistent and ineffective standards. As a result, companies are burdened with high costs in a system 88

4 产 标准 认证和合格评定 场准入际标准, 来制定中国自己的标准 制定这样独特的中国版标准是一种重复, 并造成贸易壁垒, 它不仅限制跨国公司开发的技术和产品进入中国, 同时还阻碍中国的技术和产品对外出口 从实践角度讲, 由于全球市场上的技术及其应用数不胜数, 新技术开发和应用总是不断推陈出新, 没有任何单独的一个或几个标准制定机构能够独自承担全球市场上所有标准的制定任务 每个标准制定机构都有自己独特的优势, 并在全球经济中发挥自己特有的作用 此外, 正如全球市场所公认的, 一项标准真正起作用的是标准的内容而不是标准制定机构的名称或商标 因此, 在采用某项标准时应该着重关注标准制定的原则和科学程序, 特别是标准的技术品质和市场相关度, 即市场上用户的接受程度 监管者应该以开放的姿态面对所有的标准制定机构, 包括设在美国且已获得全球认可的标准制定机构 认可全球知名的标准制定机构为国际标准制定机构有助于提升中国技术和产品在全球市场中的竞争力 中国美国商会强烈促请中国正式放宽认可国际标准制定机构的范围, 从国际标准化组织 (ISO) 国际电工技术委员会 (IEC) 和国际电信联盟 (ITU) 扩大至其他遵循世界贸易组织贸易技术壁垒协定 (WTO/TBT/1/Rev.8) 中规定的六大原则的所有标准制定组织, 这六大原则包括透明 公开 公正与协商共识 相关性与有效性 协调性 和兼顾发展中国家利益 中国美国商会相信设在美国的标准制定机构均符合上述要求 外资企业参与标准制定 国标委的相关规定声明, 在华登记注册的外资企业有资格加入中国标准化技术委员会或工作组, 并参与中国标准的起草和投票 然而, 目前这项规定的实际执行情况千差万别 在实践中, 是否允许外资企业加入的决定权下放给了各技术委员会和技术分委会, 尽管上述委员会和分委会都归国标委主管 有些技术委员会和技术分委会根本不允许外资企业参与标准及技术规定的起草工作 有的允许外资企业以有投票权的成员身份参加, 有的则仅允许外资企业以没有投票权的观察员的身份参加标准工作组 这些限制不但不公平, 而且也与国标委允许外资企业参与标准的起草和制定工作的原则不一致 国标委应对所有的标准化技术委员会和工作组进行指 导, 确保他们允许外资企业以完全投票权的身份参加并参与所有技术委员会和技术分委会, 同等地享有全面参与委员会工作计划制定和标准起草的过程 中国在起草标准时还应该征求跨国企业成员的意见和建议, 这样才更有可能使中国的标准被国际市场所认可 强制 自愿 标准制度 不同的部委或部门对标准和法规的实施程序有时并不一致, 这其中也包括了自愿标准 在某些情形下, 自愿性标准会被采用为监管和认证中的技术条件, 因此实质上都变成了强制标准 然而与强制标准不同的是, 在上述自愿标准实施之前, 没有任何通知程序将这些自愿标准已被纳入法规或者认证要求的事实通知相关企业 当自愿性标准被纳入法规或认证要求之后, 如果能够有一个透明的通知程序在上述标准实施前将此信息通知相关企业, 这将有助于企业更好地适应中国监管制度的变化 为了实现这一目标, 中国美国商会建议中国应该要求此等标准按照国标委正常程序审查并下发征求意见 此举将避免各相关政府机构的职责和义务发生混淆, 使企业有机会提交重要 积极的反馈, 并有助于澄清强制性标准的要求及其实施方式 标准实施过渡期 2012 年 9 月 日, 中美商贸联委会医药和医疗设施分会医疗设备国际标准信息共享项目工作组会议在北京召开 会议就美国 欧洲和中国在新标准的推行和实施过渡期管理上的差异进行了广泛而深入的讨论 特别是 IEC 第三版医用电器安全标准已经在美国和欧洲上线实施, 带有 3 年的过渡期 与此同时, 在中国, 鉴于 IEC 属于强制 ( 法定 ) 标准, 对该标准的任何修订按照中国法律的要求都要立即实施 中国美国商会因此建议中国在采纳实施标准时规定更长的过渡期 环境标准 中国多家政府主管部委经常分别就同一问题制定不同的环境标准, 从而导致这些标准在实施过程中的不一致, 并削弱标准的实施效果 因此, 由于缺乏明确的指引, 相关企业承担了高额的成本 环境标准缺乏衔接和协调的一个典型例证便是重型车辆尾气排放限量标准和油耗标准 在美国, 油耗可以在检测发动机排量时通过检测二氧化碳浓度予以测量 因此, 中国美国商会建议中国政府考虑通过检测二氧化碳水平来检测油耗 此举可以降低因标准不一致给相关企业造成的疑惑, 同时有助于检测机构依据统 业政策和市 AmCham China 2013 White Paper 89

5 without clear guidance. One example of this lack of coordination on standards concerns emission limit standards and fuel efficiency standards for heavy-duty commercial vehicles. In the US, fuel efficiency is measured through CO2 testing, which can take place when engines undergo emissions testing. AmCham China, therefore, suggests the Chinese government consider using CO2 levels to measure fuel efficiency. This would reduce the confusion for companies created by inconsistent standards, while enhancing the efficacy of the standard by allowing testing agencies to focus their enforcement efforts on a unified standard. AmCham China supports China s efforts to stipulate that all on-road and off-road emission regulation measures reduce pollution emission limits. AmCham China also urges the related Chinese government agencies to work together to effectively enforce this measure, and in particular to enhance supervision of vehicle and components manufacturers COP and in use compliance to ensure emission limits are met. China should also institute substantial fines as punishment for enterprises that violate these measures. Comment Period and English Translations All standards initiatives pursued by China should allow for a comment period of 60 days, per Annex 3 (Code of Good Practice) of the WTO/TBT Agreement. This amount of time is necessary for firms to adequately respond to the complex issues within each standards initiative. The Chinese government should also strive to provide English translations early in the process along with a detailed description and rationale for each standards initiative. This would allow AmCham China members to prepare a more thorough and appropriate response during the comment period, which in turn would allow the Chinese government to include international best practices in its standards for the benefit of all businesses, as well as China s economy. Recent Developments 2012 National Standards-Setting and Revision Work Plan SAC released its Notice Regarding National Standards- Setting Plan (Second Batch) (Work Plan) on December 25, AmCham China applauds SAC s efforts to publish this information as a reference for both foreign and domestic stakeholders in China s technical standardization process. According to the Work Plan s introduction, the National Standardization Management Committee plans for a total of 758 standards to be addressed, with this work beginning in Of these, 584 will be new standards and 174 will be revisions of existing standards. In addition, 750 will be recommended or voluntary standards, with eight technical guidance documents. The Work Plan also identifies the corresponding departments, technical managing organizations, and drafting organizations for each standard. Finally, it directs the respective departments in charge of each standard to carry out the following: organize and supervise the technical committees and main drafting organizations; improve coordination between relevant departments; collect comments on draft standards; and ensure the quality of the standards. AmCham China is pleased to see the leadership role SAC has taken in increasing the transparency of China s standardssetting process, improving coordination between relevant departments, and requiring the collection of comments on draft standards. Information Technology Office Equipment Security Standard The Chinese government has completed drafting a nationallevel printer security technical standard, entitled the Basic Security Requirement for Information Technology Office Equipment Security Standard (Information Security Standard). Its scope encompasses printers, copiers, electrophotographic and inkjet systems, scanners, multi-function devices, and their associated supplies. Testing criteria will likely be based on this technical standard. TC260, in conjunction with the China Electronic Standardization Institute (CESI) under the Ministry of Industry and Information Technology (MIIT), was the primary drafter of the Information Security Standard and used IEEE 2600 as a template in the drafting process, along with input from Chinese companies. Foreign printer manufacturers were allowed to join the working group developing this standard, but only as observers. The draft is currently under review at SAC and is expected to be published soon. As a next step, TC260 and CESI will be drafting testing standards to implement the framework laid out in the Basic Security Requirement for Information Technology Office Equipment Security Standard. AmCham China hopes China will allow foreign participation in this information security-related testing standard as full voting members at all stages of the drafting process, not just as observers. AmCham China also hopes that China will adopt existing international testing standards, instead of taking the international standard and modifying it for the China market. This again would enhance China s ability to influence international standards development and promote the acceptance of Chinese standards globally. Cloud Standards On July 12, 2012, TC260 published the draft of the Information Security Technology: Government Department Cloud Computing Service Provider Basic Security Requirements, with a comment period that ended on September 1, This draft standard covers guidelines for, among other issues, cloud service provider size and operational experi- 90

6 产 标准 认证和合格评定 场准入一标准进行检测, 提高标准的执行度 中国美国商会支持中国政府制定各项措施来减少道路及非道路机械的污染物排放 中国美国商会还促请中国相关政府部门能够提高联合执法, 针对整车及关键零部件厂商加强与排放相关的生产一致性和使用的合规控制及监管力度, 并提升对违规企业的处罚 评议期和英文翻译 根据 WTO/TBT 协议附件三 ( 优良实践守则 ), 中国起草的标准计划都应该允许 60 天的评议期 这段评议期对企业来说非常必要, 有助于它们恰当地回复每个标准体系中包含的复杂问题 中国政府也应当尽早提供英文版本, 详细描述各个标准计划的内容和原理 此举将使得中国美国商会的会员企业能够在评议期内更为充分且适当地作出应对, 从而也能使中国政府将国际最佳实践吸收到本国标准体系中来, 从而造福所有企业以及中国整体经济 最新进展 2012 年国家标准制定与修订计划 2012 年 12 月 25 日, 国标委发布了 关于国家标准制修订计划 ( 第二批 ) 的通知 ( 工作计划 ), 中国美国商会对国标委为中国标准化的程序, 将该信息发给国内外利益相关方参考的做法表示赞赏 根据上述工作计划, 国家标准化管理委员会计划自 2013 年年初起, 对总计 758 项国家标准进行制 修订 其中 584 项是制订新标准, 而 174 项是对现有标准进行修订 另外, 其中的 750 项是推荐性或自愿标准,8 项是技术指导文件 工作计划还确定了负责每一项标准工作的相关部门 技术管理机构和标准起草单位, 最后, 要求负责各项标准的相关部门开展以下工作 : 组织与监督技术委员会和主要起草单位的工作 提高相关部门工作的协调性 收集标准草案的相关意见和确保标准的质量 中国美国商会高兴地看到国标委在提高中国标准制定过程的透明度, 提高相关部门工作的协调性, 以及要求对标准草案收集意见等工作中所发挥的领导作用 信息技术办公设备安全标准 中国政府已拟定了国家级别的打印机安全技术标准, 名为 信息技术办公设备基本安全要求 ( 信息安全标准 ), 其范围涵盖了打印机 复印机 电子照相与喷墨系统 扫描仪 多功能一体机以及其他相关产品 相关的检测标准将可能以该技术标准为基础 信息安全标委会连同工信部下属的中国电子技术标准化研究院 (CESI) 是该 信息安全标准 的主要制定机构 两机构在标准起草过程中使用 IEEE 2600 标准作为范本并参考了中国企业的建议 而国外打印机生产商仅允许以观察员身份加入标准制定工作组 目前该草案正在由国标委进行审议, 预计不久就将出台 下一步, 信息安全标委会和 CESI 将负责起草检测标准, 执行 信息技术办公设备安全标准基本安全要求 中设定的框架 中国美国商会希望中国能够允许外资企业以完全投票权成员的身份, 而不仅仅是观察员的身份, 参与上述信息安全相关检测标准起草的所有阶段 中国美国商会还希望中国能够采用现行的国际检测标准, 而不是对国际标准进行修改以适应中国市场 这同样将提高中国在国际标准制定方面的影响力并促进中国标准为全球所认可 云标准 2012 年 7 月 12 日, 信息安全标委会发布了 信息安全技术 : 政府部门云计算服务提供商基本安全要求 ( 草案 ) 并公开征求意见, 征求意见的截止日期是 2012 年 9 月 1 日 上述标准草案的内容之一便是对云计算服务提供商的规模和运营经验, 以及云计算服务提供商和政府客户之间的业务交易做出指引性规定 ( 详情请参阅 信息和通信技术 一章 ) 电器产品消防安全通用要求 2011 年 11 月 9 日, 国家消防电子产品质量监督检验中心 ( 消电产品质检中心 ) 发布了 电器产品消防安全通用要求 ( 消防要求 ) 草案并公开征求意见 之后不久该质检中心又发布了草案修订版, 并做出重大改进 中国的消防要求目前只能勉强符合 IEC60695( 火灾危险测试 ) 的要求 上述消防要求中对中国建筑物内安装的电器产品作出了具体的要求 部分要求可与国际标准持平, 但其他则与国际电工技术委员会 (IEC) 的要求有偏差 还有一些标准是建筑物室内安装电器产品标准中从未出现过的要求, 如果将来加以实施, 可能会对一系列电器产品的进口和销售构成监管壁垒 中国美国商会希望最终出台的消防要求能够体现电子产品消防领域的最佳国际实践, 且不会对电子产品的进口和销售造成额外且不必要的监管壁垒 业政策和市 AmCham China 2013 White Paper 91

7 ence and business dealings between cloud service providers and government customers. (See the Information and Communications Technology chapter for further information on this development.) Fireproof Requirements for Electronics Products On November 9, 2011, the China National Centre for Quality Supervision and Testing for Fire Products (CNCQSTFP) released a draft for public comment of the Fireproof Requirements for Electric Products (Fireproof Requirements). Shortly thereafter in December 2011, CNCQSTFP released a draft for review of the standard and adopted important changes. China s Fireproof Requirements loosely correspond to IEC (fire hazard testing). The Fireproof Requirements contain a number of specific requirements for electronics installed in buildings in China. Some are comparable to global requirements, while others constitute deviations from IEC requirements. Still others are completely unprecedented requirements for electronic equipment installed in buildings, and would impose regulatory barriers for import or sale of a wide range of electronics, based on the standard s future enforcement. AmCham China hopes that the Fireproof Requirements when finalized reflect global best practices in the area of fireproofing for electronics, and do not impose any additional and unnecessary regulatory burdens on the import and sales of electronics. Emission and Fuel Economy Standards China announced that January 1, 2012 was the effective date of implementation for the NS IV fuel emission standard, but a few days prior to January 1, another announcement postponed implementation until July One of the reasons publicly given for the postponement was that qualified diesel fuel was not available to support NS IV. The Chinese government announced that NS III vehicle diesel fuel and common diesel fuel (350 ppm) would be ready July 1, The Ministry of Environmental Protection (MEP) has spent significant effort in promoting diesel fuel quality improvement so that NS IV can be effectively implemented on July 1, AmCham China urges Chinese government agencies involved in fuel quality issue, including MEP, MIIT, the General Administration of Quality Supervision, Inspection and Quarantine and National Development and Reform Commission (NDRC) to work closely together to ensure that infrastructure is ready for a timely implementation of NS IV. AmCham China hopes that NDRC can confirm the date for the nationwide availability of NS IV diesel fuel (50 ppm) to ensure effective NS IV emission implementation. The revision of Vehicle Diesel Standards (19147) does not lay out a specific timeline for the respective emission reduction limits of different levels of fuel (NS III fuel, NS IV fuel and NS V fuel). The coexistence of different emission reduction limits for different quality levels of fuels presents a roadblock towards effective implementation of emissions reductions. AmCham China recommends that China specify in the Standard the specific times when different levels of fuel will be ready. When a higher level of fuel is supplied, the lower level fuel supply should automatically be halted. And also, when NS III diesel fuel is available on July 1, 2013, the lower level quality diesel fuel shall be banned and the violation shall be severely punished. Food Standards On January 30, 2012, the Ministry of Health issued the draft of the 12th Five-Year Plan on National Food Safety Standards. Examples of progress China has made on this issue include: improvement in the food safety national standards system through clarified requirements and published administrative measures, a more streamlined approach for reviewing and integrating food standards, and increased publicizing and smoother implementation of new national food standards. Nonetheless, challenges still remain that have yet to be addressed by the Chinese government. These include: a lack of coordination among Chinese ministries resulting in the coexistence of overlapping standards which leave some issues unaddressed; insufficient food safety supervision due to the lack of standards on, for instance, detection methods and food packaging materials; and the lack of an unsatisfactory scientific basis in standards, leaving them unable to keep pace with food safety supervision requirements and industry development as well as popular concern over food safety. Conclusion American industry is glad that China is working diligently to put in place its standards system and would like to work cooperatively with the Chinese government and industry in that endeavor. However, AmCham China would like to emphasize the importance of technical and market knowledge in the drafting of effective and efficient standards and testing processes for the benefit of China and its consumers. China s adoption of existing international standards, combined with partnering with foreign enterprises in the development of new standards, can create a system of standards in China that will drive domestic innovation and increase foreign investment and research and development in China. China should also ensure equal treatment for FIEs in all phases of the standards development process. Recommendations Allow non-chinese testing organizations to carry out testing in China. Broaden recognition of international SDOs beyond ISO, IEC, and ITU to any organization which 92

8 产 标准 认证和合格评定 场准入燃油排放 / 质量标准 中国曾宣布自 2012 年 1 月 1 日起正式实施国家第四阶段机动车污染物排放标准, 但在 2012 年 1 月 1 日前几天, 又宣布将该标准的实施日期推迟至 2013 年 7 月 该通知中公布的延迟实施的理由之一便是目前的柴油品质无法满足国 4 排放标准的实施要求 中国政府还宣布将在 2013 年 7 月 1 日前推出符合国 3 标准的机动车柴油燃料和普通柴油燃料 (350ppm) 但这两项都没有按期推出 环境保护部为提高柴油燃料质量, 在 2013 年 7 月 1 日如期实施国 4 标准作出了巨大的努力 中国美国商会促请中国政府负责燃料质量问题的相关部门, 包括环境保护部 工业和信息化部 国家质量监督检验检疫总局以及国家发改委, 通力合作努力解决上述问题, 确保国 4 排放标准能够如期顺利实施 中国美国商会希望国家发改委能够确定符合国 4 排放标准的柴油燃料 (50 ppm) 在全国范围内推广使用的时间, 从而确保国 4 排放标准的如期实施 修订后的机动车柴油标准 (19147) 未指明不同排放阶段所对应的燃油 ( 国 3 燃油 国 4 燃油和国 5 燃油 ) 标准实施日期, 势必将导致不同等级燃油共存的局面, 从而造成排放法规无法顺利推进 中国美国商会建议中国在相关标准中明确各个阶段燃油减排的实施日期 一旦推出了高品质的燃油, 就应当自动停止上一阶段燃油供应 此外, 在 2013 年 7 月 1 日国 3 标准的机动车柴油燃料推出时, 应禁止上一阶段燃油供应, 并应对违反行为予以严厉处罚 食品标准 2012 年 1 月 30 日, 卫生部发布了 国家食品安全标准十二五规划 草案 中国在食品安全领域所取得的成就包括 : 通过明确要求并出台管理办法, 提升食品安全国家标准, 改进完善食品标准审查和整合办法, 加快新的国家食品标准的制定和顺利实施 尽管如此, 中国政府依然面临诸多尚待应对的挑战 包括 : 中国相关部委之间缺乏协调, 各项标准政出多门, 相互重叠, 反而造成部分问题无法解决 ; 由于缺乏相关标准, 如留存方法和食品包装材料的标准, 造成食品安全监管不力 ; 标准制订缺乏令人满意的科学基础, 造成相关标准无法跟上食品安全监管要求以及行业发展的需要, 也无法解决食品安全领域的热点问题 结论 美资企业界高兴地看到中国正努力将其制定的各项标准落到实处, 在此方面也很愿意与中国政府和业界进行合作 尽管如此, 中国美国商会仍想强调, 技术知识与市场了解对于制定既有效益又有效率的标准和检测流程的重要性, 这无疑将有益于中国及其消费者 中国采用现行国际标准, 同时在新标准制定方面与外资企业合作, 可有助于创建一套中国标准化体系, 推动中国国内的创新, 增加外国在华投资与研发 中国应当确保外资企业在标准制定程序的各个阶段中都能享有平等的待遇 建议 中国应当允许非中资检测机构在华开展检测业务 扩大对国际标准制定组织的认可范围, 从 ISO IEC 和 ITU 扩大至其他遵循世界贸易组织贸易技术壁垒 (WTO/TBT) 关于国际标准制定原则的标准制定组织 允许外资企业充分参与中国商业标准制定的所有阶段 国标委应更密切地监督各技术委员会和技术分委会一级的标准工作组的活动, 确保所有在华登记注册的外资企业都能够在与内资企业平等的基础上参与标准制定活动的各个阶段 业政策和市 AmCham China 2013 White Paper 93

9 follows the WTO/TBT principles on international standards development. Allow FIEs to participate fully in all phases of China s commercial standards development. SAC should more closely monitor the activities of TC- and SC-level standards working groups to ensure that FIEs are allowed to participate in all phases of standards development activities on an equal basis with domestically-invested enterprises. 94