Pesticide Residues and Government Regulation in China─Evidence from Pesticide Re

SHAO Yi-tian, WANG Yi-ping

1. China Institute of Regulation Research, Zhejiang University of Finance and Economics, Hangzhou 310018, PRC

2. Community Health Service Center of Mishi Lane, Gongsu District, Hangzhou 310005,PRC

Abstract China is a big producer and exporter of fruits and vegetables, and pesticide residues are an important factor affecting the quality and safety of fruits and vegetables and their export trade. In this paper, we analyzed the pesticide residue data on fruits and vegetables in 32 major Chinese cities between 2012—2019, the export data of Chinese fruits and vegetables and the role of pesticides in foodborne diseases. The results showed that pesticide residues in fruits and vegetables (PRFV)partial excess of maximum residue standard (MRL) and residues of banned pesticide were still widespread in China. By comparing the standards of pesticide residues in the European Union and China and addressing the agricultural situation in China,this paper analyzed the main causes of PRFV in China and put forward some policy suggestions for strengthening government regulation of pesticide application in agricultural products.

Key words Fruits and vegetables; Pesticide residues; Government regulation;Policy recommendations

1. Introduction

In recent years, China’s crop yields have remained stable, and the issue of growing adequate quantities of food for 1.4 billion Chinese has been solved. However, China's limited farmland determines that crop yields depend on a large number of agricultural inputs such as pesticides and fertilizers. As a result, China has become a major pesticide producer.According to the data of the China Statistical Yearbook, the production of chemical pesticides in China has risen from 0.6 million tons in 2000 to 3.74 million tons in 2015. Pesticide pollution has become one of the main sources of food safety problems in China.

Currently, more than 1 000 kinds of pesticides are commonly used in the world, and new pesticides are constantly being created and applied. Pesticides can greatly improve the efficiency of agricultural cultivationand safeguard agricultural production. Research data showed that chemical pesticides such as DDT can recover 15% of global grain loss. The contribution rate of pesticides to vegetable yield is more than 80%. However, as the expansion of agricultural operations is accompanied by the increasing use of pesticides, quality and safety issues caused by pesticide residues on agricultural products are gradually emerging. The massive spraying of pesticides causes serious safety risks to the environment and human health.

According to Food and Agriculture Organization(FAO) of the United Nation’s statistics, China exports an average of 1.8 million tons of fruits and 3.24 million tons of vegetables to the world every year.Therefore, PRFV is not only a problem in China but also a challenge to food safety around the world.Here, we address the actual situation of PRFV in China. During 8 years of authoritative determinations of PRFV, a Chinese scientific research team collected PRFV data across China. The results showed that some PRFV exceeded the maximum residue limit(MRL). Moreover, some highly toxic and banned pesticides were also detected. In this paper, we analyze this data regarding PRFV in China and discuss policy options to reduce harms due to PRFV.

2. Materials and Methods

2.1. The main data sources of this paper include the following:

a) For data regarding the percentage of PRFV exceeding MRL in the EU and China and the content of highly toxic pesticides that were banned in China in fruits and vegetables we refer to: Pesticide Residues Report on Fruit and Vegetables Market in China, 2020.

b) Export data of Chinese fruit and vegetables from 2012 to 2018 was sourced from FAO statistics(FAO, 2020).

c) Pesticide, fruit, and vegetable production data in China from 2012 to 2018 was from the China National Statistical Yearbook, 2019.

d) For information about food borne diseases that were caused by pesticide from 2011—2018, we used the China Health Statistics Yearbook, 2019.

e) Data on family farms include the average age and education level of farmers in China from the Chinese Family Farm Development Report, 2018.

2.2. PRFV and banned pesticides determination methods

Liquid chromatography-hybrid quadrupole timeof-flight mass spectrometry (LC-Q-TOF/MS) and gas chromatography-hybrid quadrupole time-of-flight mass spectrometry (GC-Q-TOF/MS). Because of their convenience and high precision, the two methods are often used for the detection of pesticide residues.

3. Results and Analysis

3.1. China is a big exporter of fruits and vegetables

According to the China Statistical Yearbook 2020, 9.79 million tons of vegetables were exported from China, and the value of domestic vegetables exports exceeded $12.5 billion in 2019, this data statistics were more extensive than FAO. FAO statistics showed that the quantity of fruit exported from China was relatively stable, with an average annual export volume of more than 1.8 million tons,accounting for 0.45% of the total fruit output of China. The quantity of vegetables exported from China maintained a steady growth trend, with an average annual export volume exceeding 3.2 million tons, accounting for 0.73% of China's total vegetable production. Export volumes and percentages were shown in Fig.1. The export composition and quantity were shown in Table 1.

3.2. Foodborne diseases caused by pesticide residues

Fig. 1 Export volumes of Chinese fruits and vegetables

Table 1 Source of statistics on export volumes of fruits and vegetables

According to the World Health Organization, at least half a million poisoning cases and 115 000 deaths were caused annually by pesticides worldwide, and dozens of diseases were related to pesticide residue exposure. In recent years, the Chinese government had paid more attention to food safety. Since 2016, the China Health Statistics Yearbook had separately listed the number of incidents of pesticide poisoning in foodborne diseases, while a large number of chronic poisoning incidents were not included. The statistics were shown in Table 2. State media showed that the number of pesticide poisonings in China was 100 000 per year. In 2019, CHEN Jun-shi, an academician of the Chinese Academy of Engineering, estimated 200 to 300 million people suffer from foodborne diseases every year in China. Based on this estimate, foodborne diseases caused by pesticides in China are estimated to occur 1.74 to 2.61 million times per year.

3.3. Widespread PRFV in China

The China statistical yearbook stated that 250.94 million tons of fruits and 722.71 million tons of vegetables were produced annually in China between 2012 and 2018. As for the data about PRFV, what are the factual data in China? To answer this question,PANG Guo-fang, a member of the Chinese Academy of Engineering, led a research team to determine PRFV in major cities in 32 Chinese provinces (except Hong Kong and Macao). According to the FAO,MRL was the highest level pesticide residue that waslegally tolerated in or on food or feed when pesticides were applied correctly following Good Agricultural Practice. The main pesticide residue data were shown in Table 3 and 4 and the highly toxic and banned pesticides in Chinese fruits and vegetables were shown in Table 5.

Table 2 The number of foodborne diseases caused by pesticides in China

The results of LC-Q-TOF/MS showed that the average percentage of fruits and vegetables exceeding the MRL in the EU was 16.966% in 2012—2015 and 17.675% in 2015—2019. The average percentage exceeding MRL in China was 2.609% in 2012—2015 and 2.128% in 2015—2019. The average content of highly toxic banned pesticides in fruits and vegetables were 7.353% in 2012—2015 and 5.756% in 2015—2019, respectively..

The results of GC-Q-TOF/MS showed that the average percentage exceeding MRL in the EU was 41.163% in 2012—2015 and 43.453% in 2015—2019.The average percentage exceeding MRL in China was 2.894% in 2012—2015 and 1.991% in 2015—2019.The average content of highly toxic banned pesticides in fruits and vegetables were 16.566% in 2012—2015and 8.859% in 2015—2019, respectively.

Table 3 Pesticide residues in Chinese fruits and vegetables in 2012—2015

Table 4 Pesticide residues in Chinese fruits and vegetables in 2015—2019

Table 5 Major highly toxic and banned pesticides in Chinese fruits and vegetables

Comparing the two-stage detection data, it can be seen that PRFV had been significantly reduced.LC-Q-TOF/MS data showed that the average percentage of fruits and vegetable whose pesticide residues exceeded the MRL was reduced by 18.44%between 2015—2019 when compared to the period 2012—2015. Likewise, the fraction containing banned pesticides decreased by 21.72% between 2015—2019 in comparison to the 2012—2015 period. Similarly,GC-Q-TOF/MS data showed even greater reductions of 31.2% and 46.52%, respectively. In contrast,according to the MRL in the EU, the PRFV in China had increased. The LC-Q-TOF/MS and GC-Q-TOF/MS determinations showed that the average values increased by 4.18% and 5.56%, respectively.

4. Discussion

4.1. Main causes of PRFV in China

Utilization of pesticides can ensure production of agricultural products and economic benefits for farmers, whereas there are potential safety hazards from their excessive usage that can't be ignored.Accordingly, what are the main causes of PRFV exceeding the MRL in China?

4.1.1. Substandard MRL in China

China's "MRL for pesticide in food" (GB2763-2019) which was implemented in 2020, stipulates 7 107 MRL standards for 483 pesticides. By contrast,the EU stipulates 162 248 MRL standards; the USA and Japan stipulate 39 147 and 51 600 MRL standards respectively. Apparently, the numbers of pesticide MRLs in China are relatively less compared with developed countries. This is also the most fundamental reason why Chinese fruits and vegetables exceed the MRLs in the EU standard. It is noteworthy that some studies have found that MRLs affect farmers' planting behavior.

4.1.2. Farming conditions unique to China and inadequate government regulation of pesticides

The purpose of government regulation is to make rules for market operation and enterprise behavior and to maximize social welfare. However, government regulation of the pesticide market in China is inadequate for China’s unique farming conditions.Firstly, an agricultural population of 564 million live on 9.6 million square kilometers of Chinese land. Each farmer may become a source of pesticide residues on crops. Secondly, China implemented the household contract responsibility system, and the farmland was distributed fragmented to every farmer. Consequently, farmers can grow crops at their discretion, and it is hard to form a large-scale and unified crop management system. Thirdly, China has not implemented strict regulation measures on pesticides. Factories can produce pesticides in large quantities, and farmers are not restricted from arbitrary purchase and utilization of them.

4.1.3. Farmers age, low education, and lack of guidance

Farmers lack of knowledge about pesticides is one of the key reasons for pesticide abuse.Firstly, China Family Farm Report (2018) showed that the average age of Chinese family farmers was over 46 years old, with 34.79% of farmers over 50 years old. According to China's census, 47.13% of the population employed in agriculture was over 50 years old. Secondly, a survey of 2 947 Chinese family farmers found that 45.1% had an education up to the secondary level, 27.52% had graduated from high school and only 2.34% had a college education. According to China's census, 43.45% of the agricultural workers have an education level below elementary school. Thirdly, Chinese farmers rarely receive pesticide guidance, and pesticide utilization was mainly based on practical experience. A survey found that 35.26% of pesticide application time,30.10% of pesticide type, and 28.52% of pesticide dose all depend on farmers' experience. Commonly,pesticide applications result in doses that cause fruits and vegetables to exceed the MRL standard.

4.1.4. Counterfeit and banned pesticides disrupt the agricultural market

Field investigation found that Chinese farmers often bought counterfeit pesticides. Counterfeit pesticides do not control agricultural diseases and may inhibit the normal growth of crops. It was difficult for farmers to distinguish the authenticity of pesticides. The lack of effect of counterfeit pesticides leads to an increased amount in their application.Besides, many counterfeit pesticides contained highly toxic chemicals, and even included some pesticides that have been banned by the government.The temptation of profiteering leads some factories to produce and sell counterfeit pesticides illegally,which results in the problem of highly toxic pesticide residues.

4.2. Effective ways to strengthen government regulation of pesticides in China

4.2.1. Making stricter pesticide MRL standards

China should make strict pesticide MRL standards and learn from developed countries.Many agricultural products meet the MRL standards in China, but not the MRL standards in the EU.This provided a standard loophole for pesticide manufacturers to produce pesticides that meet Chinese standards but do not meet foreign standards.

4.2.2. Strengthening government regulation of pesticides

Counterfeit pesticides increased farmers'agricultural production costs and the intensity of pesticide utilization. The government should investigate counterfeit pesticides thoroughly; in particular, it should establish a traceability system for highly toxic and banned pesticides. In addition,the government should standardize the production of pesticide factories, regularly spot check and conduct random inspections of pesticide quality to ensure the safety of pesticide sources. Government policy can affect the agricultural production structure and pesticide application behavior of agricultural operators. Researchers also found that pesticide quota policy can significantly reduce the utilization of highly toxic pesticides.

4.2.3. Development of new pesticides

Chemical pesticides are controversial because of their strong side effects. In recent years, the world has committed to the development of new pesticides and encouraging the research and promotion of biological pesticides. Scientific research is needed for the development of low polluting, low toxicity, whereas high efficiency pesticides. China should speed up the development of new pesticides and gradually eliminate highly toxic chemical pesticides.

4.2.4. Guide farmers to utilize pesticides safely

The most direct cause of agricultural product safety risk is the behavior and improper process of pesticide utilization by agricultural producers. To pursue economic benefits, some farmers do not comply with pesticide usage rules, including increasing the amount of pesticide, increasing the frequency of application, shortening the interval between applications, and even using highly toxic pesticides.Considering that the agricultural environment in China is complex and the per capita cultivated land is very limited, but small farmers are particularly large,the government should strengthen guiding farmers in the use of pesticides, and improve farmers' knowledge of safe food production. Researchers have found that government technical training for farmers can effectively reduce pesticide utilization. MIGHELI M

et al

. reached the conclusion that the higher the education level of farmers, the less pesticide they used.

5. Conclusion and Discussion

China has extensive agricultural trade relations with the world. The toxicity of pesticide residues has become an important concern regarding food safety and agricultural trade. China's agricultural development has gradually shifted from the demand for production to the requirement for quality and safety. A large number of pesticide residues not only have a profound impact on agricultural ecosystems but also cause a crisis for human health. However,the mass spectrometry results (Table 3 and 4) showed that pesticide residues exceeding the MRLs were widespread in China. In addition, the problem of highly toxic and banned pesticide residues in fruits and vegetables was also prominent. Further analysis showed that the root cause of pesticide residues was a lack of effective government regulation. This included low pesticide MRL standards in China compared with the EU, and the prevalence of banned pesticides. This was also closely related to China's unique farming circumstances.

Consequently, pesticide residues in agricultural products must be given sufficient attention.Pesticide producers, distributors and agricultural producers must strengthen training in the safe use of pesticides, standardize the use of pesticides to prevent farmers from dangerous overexposure and ensure safe intervals between pesticide applications.It is necessary for the government to strengthen the regulation of the production, sale and utilization of pesticides, and to improve the pesticide MRL standards. Illegal production of banned pesticide in factories must be investigated to regulate the pesticide market. There is an urgent need to continue to promote pesticide reduction policies to improve the quality and efficiency of agricultural products. China should also constantly strengthen the research and development of new pesticides to help create a safe food environment for the world.