2016年3月1日,国家食品药品监督管理总局发布了《保健食品注册与备案管理办法》,2月26日,国家食品药品监督管理总局毕井泉局长签署第22号令《保健食品注册与备案管理办法》。该办法共8章75条,将于2016年7月1日起施行,具体内容如下:

一是调整保健食品上市产品的管理模式。按照新修订的《食品安全法》,根据风险管理要求,该办法将保健食品产品上市的管理模式由原来的单一注册制调整为注册与备案相结合的管理模式,规定国家食品药品监督管理总局负责保健食品注册管理,以及首次进口的属于补充维生素、矿物质等营养物质的保健食品备案管理。省、自治区、直辖市食品药品监督管理部门负责本行政区域内其他保健食品备案管理。

二是优化保健食品注册程序。该办法规定生产使用保健食品原料目录以外原料的保健食品,以及首次进口的保健食品(属于补充维生素、矿物质等营养物质的保健食品除外)必须通过产品注册,并由审评机构统一组织现场核查和核检验,使各项流程紧密衔接。审评机构根据实际需要组织核查机构开展现场核查,组织检验机构开展复核检验,明确了技术审评、现场核查以及复核检验的工作机制、程序要求、时限要求;规定资料审查、现场核查、复核检验、技术综合审评每个环节没有通过的,审评机构均可以终止审评,提出不予注册的建议,以减少审评资源的浪费;规定将复审程序从注册决定作出后调整为审评结论作出后、注册决定作出前,突出审评机构要加强与注册申请人之间的沟通。

三是强化保健食品注册证书的管理。该办法规定保健食品注册证书有效期为5年,并载明产品名称、注册人名称和地址、注册号、颁发日期及有效期、保健功能、功效成分或者标志性成分及含量、产品规格、保质期、适宜人群、不适宜人群、注意事项,以及保健食品注册证书附件应当载明产品标签、说明书主要内容和产品技术要求等。同时,规定国产保健食品注册号格式为:国食健注G+4位年代号+4位顺序号;进口保健食品注册号格式为:国食健注J+4位年代号+4位顺序号。

四是明确保健食品的备案要求。该办法明确使用的原料已经列入保健食品原料目录和首次进口的保健食品中属于补充维生素、矿物质等营养物质的保健食品应当进行备案,规定国产保健食品的备案人应当是保健食品生产企业,原注册人可以作为备案人;进口保健食品的备案人,应当是上市保健食品境外生产厂商。该办法规定食品药品监督管理部门收到备案材料后,备案材料符合要求的,当场备案,发放备案号,并将备案信息表中登载的信息在其网站上予以公布;不符合要求的,应当一次告知备案人补正相关材料。同时,规定国产保健食品备案号格式为:食健备G+4位年代号+2位省级行政区域代码+6位顺序编号;进口保健食品备案号格式为:食健备J+4位年代号+00+6位顺序编号。

五是严格保健食品的命名规定。该办法规定保健食品名称不得使用虚假、夸大或者绝对化,明示或者暗示预防、治疗功能等词语;明确不得使用功能名称或者与表述产品功能相关的文字;规定同一企业不得使用同一配方,注册或者备案不同名称的保健食品,不得使用同一名称注册或者备案不同配方的保健食品。

六是强化对保健食品注册和备案违法行为的处罚。该办法规定保健食品注册申请人或者备案人应当对所提交资料的真实性、完整性、可溯源性负责。该办法规定注册申请人隐瞒真实情况或者提供虚假材料申请注册的,不予受理或者不予注册,并给予警告,并且申请人在1年内不得再次申请注册保健食品。构成犯罪的,依法追究刑事责任。同时,规定注册申请人以欺骗、贿赂等不正当手段取得保健食品注册证书的,撤销保健食品注册证书,并处1万元以上3万元以下罚款,以及被许可人在3年内不得再次申请注册。构成犯罪的,依法追究刑事责任。

相关阅读:关于完善保健食品监管制度的若干思考

保健食品原料目录

保健食品原料目录管理制度是保健食品注册备案、生产监管的基础性制度。新《食品安全法》第75条规定“保健食品原料目录和允许保健食品声称的保健功能目录,由国务院食品药品监督管理部门会同国务院卫生行政部门、国家中医药管理部门制定、调整并公布。保健食品原料目录应当包括原料名称、用量及其对应的功效;列入保健食品原料目录的原料只能用于保健食品生产,不得用于其他食品生产。”那么,哪些品种可以列入保健食品原料目录,每个品种的哪些内容应当列入原料目录,是需要优先解决的问题。

保健食品的注册与备案

新《食品安全法》第76条规定“使用保健食品原料目录以外原料的保健食品和首次进口的保健食品应当经国务院食品药品监督管理部门注册。但是,首次进口的保健食品中属于补充维生素、矿物质等营养物质的,应当报国务院食品药品监督管理部门备案。其他保健食品应当报省、自治区、直辖市人民政府食品药品监督管理部门备案”。这是新《食品安全法》在保健食品监管制度方面作出的重大调整,将既往的保健食品单一的“注册制”,修订为“注册与备案”相结合的监管制度,并明确了注册和备案的范畴,即“目录以外的”和“首次进口”的需要注册,“目录以内的”和“首次进口中属于补充维生素、矿物质等营养物质的”需要备案,充分体现了国家简政放权的基本理念。但对保健食品复方如何注册或者备案等细节并未予以明确,而这恰恰是我国保健食品独有的特色所在。

要实现新《食品安全法》对保健食品实施严格监管的目标,监管部门、生产经营企业、行业协会和专家学者等首先应在保健食品原料目录和功能目录的筛选制定、保健食品注册与备案、企业标准、标签标识和广告宣传等诸多核心环节上达成共识,在《食品安全法实施条例》、《保健食品功能目录与原料目录管理办法》、《保健食品注册与备案管理办法》、《食品标识管理办法》等法规的制修订过程中得到充分落实,才能真正实现保健食品的有效监管,扭转和纠正当前保健食品注册生产、广告营销等过程中存在的各种乱象、顽疾,确保保健食品行业的健康发展。

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