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On May 6, 2025, the Food Safety Commission of the State Council, in collaboration with five other major competent authorities, officially released the Comprehensive Governance Plan for Food Additive Abuse. The plan aims to enhance regulation across the entire food chain, from agricultural production to dining tables, by addressing risks related to the misuse of food additives, strengthening legal enforcement, and reinforcing public health protection.
The plan outlines a multi-departmental effort led by the State Administration for Market Regulation (SAMR), Ministry of Agriculture and Rural Affairs (MARA), Ministry of Industry and Information Technology (MIIT), National Health Commission (NHC), and General Administration of Customs (GACC). It reflects China’s strategic commitment to the "strictest standards, strictest supervision, strictest punishment, and strictest accountability" in food safety governance.
Key Regulatory Actions:
1. Strengthened Agricultural Oversight
The MARA will intensify supervision of food-related agricultural products, particularly focusing on the use of preservative or fresh-keeping agents at the cultivation and breeding stages. A risk monitoring program will be implemented to detect potential violations. The MARA will crack down on the use of banned pesticides and toxic substances in agricultural production. Additionally, agricultural products failing to meet safety standards will be prohibited from entering wholesale or retail markets, or from being used in food manufacturing or catering, with the MARA and the SAMR responsible for their respective regulatory duties.
2. Enhanced Oversight of Imported Additives and Foods
The GACC will strengthen inspections of imported food additives to detect undeclared substances or those not approved for use in China. Violations such as false declarations or unauthorized imports will face increased penalties. A record-keeping system for importers will be enforced, requiring detailed documentation of product names, foreign exporters, and domestic purchasers. Imports found to be non-compliant during quality assessments will be strictly dealt with according to law.
3. Control of Industrial Raw Materials and Chemicals
In order to prevent non-edible industrial chemicals from entering the food sector, the MIIT and the SAMR will oversee chemical manufacturers more strictly. Enterprises producing substances listed in the "List of Non-Edible Substances and Easily Abused Additives in Food" must label their products prominently with warnings like "Strictly Prohibited for Food or Feed Use." They are also required to maintain purchase and sales logs and adopt a real-name sales system. Sales of these materials to food producers will be explicitly banned. Authorities will also crack down on mislabeling behaviors, such as falsely branding industrial chemicals as food-grade additives.
4. Enhanced Supervision of Additive Production
The plan mandates the development of detailed licensing review guidelines for food additive manufacturers. The SAMR will conduct risk assessments of existing producers and revoke or cancel licenses of those failing to meet safety standards. Manufacturing processes must strictly follow national safety standards, including ingredient specifications, process controls, and labeling. Compound additives like blended preservatives or water-retention agents must clearly list all ingredients. Unlicensed or counterfeit production will be severely punished, especially in cases of collusion between additive suppliers and food producers.
5. Stronger Regulation of Food Additive Sales Channels
The SAMR will launch extensive inspections of additive sales across e-commerce platforms, markets, and supermarkets. Sellers should verify suppliers’ qualifications and maintain records of additive names, sources, and documentation. Products lacking proper labeling, usage instructions, or proof of compliance will be removed from shelves. Online platforms will also be held accountable for ensuring product transparency, with obligations to prevent misleading or illegal promotions. Enforcement will target unauthorized sales of additives disguised as food-grade materials, as well as those violating labeling standards (GB 29924, GB 26687).
6. Scrutiny of Additive Use in Food Manufacturing
The regulation will focus on high-risk categories such as dairy, meat, seafood, edible oils, beverages, starch-based goods, and compound seasonings. Manufacturers will be required to enhance internal controls on raw material selection, dosing, and processing techniques. Particular attention will be given to the use of compound additives and proper labeling. Enterprises found with non-compliant products during inspections will undergo full production audits. The SAMR will also encourage improvements in storage, processing, and environmental controls to reduce reliance on chemical additives. Oversight will be expanded to small food workshops and local processors.
7. Regulation of Additives in the Catering Sector
Restaurants and catering services must strengthen procurement checks and avoid using additives that do not meet national food safety standards. The public display of food additive use in meal preparation will be promoted for transparency. The SAMR will investigate and penalize catering providers that illegally sell self-made food additives in accordance with the law, and crack down on illegal use of flavorings in food types where such use is prohibited. The use, storage, or purchase of hazardous substances like nitrites will be strictly forbidden in restaurant operations.
8. Promotion of Industry Self-Governance and Public Engagement
Relevant industry associations will be encouraged to promote self-regulation, requiring members to commit to safe and necessary use of additives. Public education campaigns will be expanded through traditional media and social networks to combat misinformation and raise awareness. The public will be encouraged to report violations through the national 12315 complaint hotline. Whistleblower mechanisms will be improved within enterprises to uncover internal misconduct.
9. Legislative and Institutional Reform
Regulators will initiate legislative research to improve laws governing additive production and sales. A dynamic adjustment mechanism will be established for food additive use rules and product lists. Departments will also build a risk assessment framework for additives, with cross-agency collaboration to monitor and evaluate emerging threats. Inter-regional cooperation will be enhanced to trace violations and enforce accountability across jurisdictional boundaries.
10. Standard System Development
The NHC and SAMR will update and refine national standards for compound additives, including specifications for flavorings, pre-mixes, semi-finished ingredients, and novel food materials. This includes setting clear standards for how additives should be used in unconventional products and establishing new testing methods to support enforcement.
The plan concludes with an emphasis on collaborative enforcement, transparent communication, and long-term policy reform. Local governments are expected to prioritize implementation, monitor progress, and report results to higher authorities regularly.
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