Paratowyd y ddogfen hon gan gyfreithwyr Cynulliad Cenedlaethol Cymru er mwyn rhoi gwybodaeth a chyngor i Aelodau Cynulliad a'u cynorthwywyr ynghylch materion dan ystyriaeth gan y Cynulliad a'i bwyllgorau ac nid at unrhyw ddiben arall. Gwnaed pob ymdrech i sicrhau bod yr wybodaeth a'r cyngor a gynhwysir ynddi yn gywir, ond ni dderbynnir cyfrifoldeb am unrhyw ddibyniaeth a roddir arnynt gan drydydd partion.
This document has been prepared by National Assembly for Wales lawyers in order to provide information and advice to Assembly Members and their staff in relation to matters under consideration by the Assembly and its committees and for no other purpose. Every effort has been made to ensure that the information and advice contained in it are accurate, but no responsibility is accepted for any reliance placed on them by third parties
Y Pwyllgor Materion Cyfansoddiadol a Deddfwriaethol
CYNNIG AR GYFER RHEOLIAD GAN SENEDD EWROP A'R CYNGOR SY'N DIWYGIO RHEOLIAD (EC) RHIF 1829/2003 YNGHYLCH Y POSIBILRWYDD Y GALL AELOD-WLADWRIAETHAU GYFYNGU AR, NEU WAHARDD, Y DEFNYDD O FWYD A BWYD ANIFEILIAID A ADDASWYD YN ENETIG AR EU TIRIOGAETH
Nodyn Cyngor Cyfreithiol – Sybsidiaredd a chymesuredd
Y Cyd-destun Cyfreithiol
1. Mae egwyddorion sybsidiaredd a chymesuredd yn cael eu hymgorffori yn Erthygl 5 o'r Cytuniad ar yr Undeb Ewropeaidd –
Article 5
(ex Article 5 TEC)
1. The limits of Union competences are governed by the principle of conferral. The use of Union competences is governed by the principles of subsidiarity and proportionality.
2. Under the principle of conferral, the Union shall act only within the limits of the competences conferred upon it by the Member States in the Treaties to attain the objectives set out therein. Competences not conferred upon the Union in the Treaties remain with the Member States.
3. Under the principle of subsidiarity, in areas which do not fall within its exclusive competence, the Union shall act only if and in so far as the objectives of the proposed action cannot be sufficiently achieved by the Member States, either at central level or at regional and local level, but can rather, by reason of the scale or effects of the proposed action, be better achieved at Union level.
The institutions of the Union shall apply the principle of subsidiarity as laid down in the Protocol on the application of the principles of subsidiarity and proportionality. National Parliaments ensure compliance with the principle of subsidiarity in accordance with the procedure set out in that Protocol.
4. Under the principle of proportionality, the content and form of Union action shall not exceed what is necessary to achieve the objectives of the Treaties.
The institutions of the Union shall apply the principle of proportionality as laid down in the Protocol on the application of the principles of subsidiarity and proportionality. EN C 83/18 Official Journal of the European Union.”
2. Llywodraethir y dull o'i chymhwyso gan y Protocol ar Gymhwyso Egwyddorion Sybsidiaredd a Chymesuredd, a'r rhan berthnasol ohono at ein dibenion ni yw paragraff cyntaf Erthygl 6 –
"Any national Parliament or any chamber of a national Parliament may, within eight weeks from the date of transmission of a draft legislative act, in the official languages of the Union, send to the Presidents of the European Parliament, the Council and the Commission a reasoned opinion stating why it considers that the draft in question does not comply with the principle of subsidiarity. It will be for each national Parliament or each chamber of a national Parliament to consult, where appropriate, regional parliaments with legislative powers.”[ein pwyslais ni]
Cynigion y Comisiwn
3. Ar 22 Ebrill 2015, cyhoeddodd y Comisiwn ei gynnig ar gyfer Cyfarwyddeb newydd ar y defnydd o fwyd a bwyd anifeiliaid a addaswyd yn enetig. Daeth y cynnig hwn yn sgil methiant Cyngor y Gweinidogion i sicrhau mwyafrif cymwysedig angenrheidiol naill ai o blaid neu yn erbyn cynigion ar y pwnc, gan adael y penderfyniadau hyn i'r Comisiwn Ewropeaidd.
4. Mae crynodeb y Comisiwn o'i gynnig wedi'i hatodi i'r nodyn hwn. Dyma'r paragraff cyntaf:
“The Commission proposal amends Regulation (EC) No 1829/2003, under the ordinary legislative procedure, to introduce new provisions allowing Member States to restrict or prohibit the use of GMOs and GM food and feed covered by the GMO legal framework, in part or all of their territory, in complement to the possibilities already offered to Member States with respect to GMOs for cultivation by Directive (EU) 2015/412.” [ein pwyslais ni]
5. Mae Llywodraeth y DU wedi paratoi Memorandwm Esboniadol ar gyfer y Pwyllgorau Seneddol ar faterion Ewropeaidd. Wrth drafod sybsidiaredd, mae'r Memorandwm yn datgan fel a ganlyn:
“MINISTERIAL RESPONSIBILITY
7. Responsibility lies with the Secretary of State for Environment, Food and Rural Affairs. Whilst the Food Standards Agency (FSA) is the UK competent authority for GM food and feed, including the negotiation and operation of the EU decision-making process under Regulation (EC) No 1829/2003, the Defra Secretary of State is the lead Minister for GM issues. In practice, the FSA and Defra are working together closely to determine and take forward the UK Government’s position on this proposal.
INTEREST OF THE DEVOLVED ADMINISTRATIONS (DAs)
8. The FSA and Defra are currently discussing with the DAs what implications the proposal has for devolved decision making in the UK. The DAs have been consulted in the preparation of this Explanatory Memorandum.” …
“SUBSIDIARITY
11. In its subsidiarity assessment for the proposal (section 4.3.1 of COM(2015) 177 final), the Commission notes that:
the authorisation of GM food and feed products is currently subject to a fully harmonised process, the general objective of which is to ensure a high level of safety throughout the EU;
under the current EU regime, Member States have limited scope to take measures on GM food and feed on the basis of non-safety considerations;
the proposal would give Member States a new discretion to adopt measures on GM food and feed for reasons unrelated to safety, provided they are in accordance with EU law. This is on the assumption that national or local decision-making is the most appropriate approach in this context.
12. The Government concurs with the Commission’s assessment that decisions on the marketing and use of GM food and feed products are currently an issue of EU competence, and that the proposal would introduce a new element of subsidiarity by giving Member States the discretion to ban or restrict the use of EU-approved GM products on non-safety grounds.”
6. Byddai'r cynnig yn amlwg yn caniatáu gwneud penderfyniad i gyfyngu ar, neu wahardd, y defnydd o fwyd neu fwyd anifeiliaid a addaswyd yn enetig yn yr holl Aelod-wladwriaeth neu ran ohoni. Nid yw Memorandwm Esboniadol Llywodraeth y DU yn rhoi unrhyw arwydd y bydd gan y gweinyddiaethau datganoledig yr hawl i wneud eu penderfyniadau eu hunain o ran eu tiriogaethau. Ymddengys fod y cynnig y Comisiwn yn cydymffurfio ag egwyddor sybsidiaredd, ond mae'n bwysig sefydlu sut y byddai'r sybsidiaredd hwnnw yn gweithredu yn y Deyrnas Unedig.
7. Fodd bynnag, mae Senedd y Wladwriaeth yn Thüringen (yn yr Almaen) eisoes wedi codi pryderon ynghylch y broses sybsidiaredd. Mae wedi crynhoi'r pryderon hyn yn y Saesneg fel a ganlyn:
“Bearing in mind the very strict legal requirements set out by the Commission in its proposal, it is highly questionable whether it is actually possible for a Member State to adopt opt-out measures in compliance with EU-law, especially with regards to the international obligations of the Union. Questionable is also to what extent the involvement of all 28 EU states in the mandatory notification and control procedure contributes to fulfil the intended objectives.”
8. Gwahoddir y Pwyllgor i drafod a yw'n dymuno gwahodd Llywodraeth Cymru i egluro –
· a yw'n disgwyl gwneud ei phenderfyniad ei hun dros Gymru o dan y Rheoliad arfaethedig, a pha drafodaethau a gynhaliwyd gyda Llywodraeth y DU ar y mater hwnnw; ac
· i ba raddau y mae'n rhannu'r pryderon a fynegwyd gan Thuringen, os o gwbl.
Gwasanaethau Cyfreithiol
Cynulliad Cenedlaethol Cymru
Mehefin 2015
ATODIAD - Dyfyniad o gynnig y Comisiwn
“4.1. Summary of the proposal
The Commission proposal amends Regulation (EC) No 1829/2003, under the ordinary legislative procedure, to introduce new provisions allowing Member States to restrict or prohibit the use of GMOs and GM food and feed covered by the GMO legal framework, in part or all of their territory, in complement to the possibilities already offered to Member States with respect to GMOs for cultivation by Directive (EU) 2015/412.
The additional powers granted to Member States under this proposal will only concern the possibility to adopt measures in accordance with the Treaty to restrict or prohibit the use of GMOs and GM food and feed on their territory after these products have been authorised. It will thus not affect the procedural and substantial conditions of the authorisation of GMOs and GM food and feed under Regulation (EC) No 1829/2003, which will remain valid for the whole territory of the Union.
The measures adopted by Member States need to be compatible with the internal market, and in particular Article 34 TFEU which prohibits measures of equivalent effects to quantitative restrictions to the free movement of goods.
That is why the Member States making use of this proposal will need to justify the measures taken based on grounds to be in accordance with Article 36 TFEU and the notion of overriding reasons of public interest as developed by the case-law of the Court of justice. In addition, the measures envisaged will need to be reasoned and to be compatible with the principles of proportionality and non-discrimination between national and non-national products. Finally these measures will need to comply with the international obligations of the Union.
It will be up to each Member State wanting to make use of this "opt-out" to justify the restriction or prohibition on a case-by-case basis, taking into account the GMO in question, the type of measure envisaged, and the specific circumstances at national or regional level that justify such an opt-out.
As for Directive (EU) 2015/412, Member States will not be allowed to use justifications linked to the assessment of risks to health or to the environment which are comprehensively addressed in the authorisation decision and by the procedures already available in Regulation (EC) No 1829/2003, to address new risks (e.g. “emergency measures” under Article 34 or “supervision” under Articles 9 and 21).
The new possibility offered by the proposal does not cover the placing on the market and use of products not labelled as genetically modified, in accordance with labelling thresholds set under the GMO legal framework (e.g. under Articles 12 and 24 of Regulation (EC) No 1829/2003 food and feed containing an adventitious or technically unavoidable presence of GM material up to 0,9% by ingredient are not labelled).
The Member States which will restrict or prohibit the use of GMOs and GM food and feed already on the market will also have to preserve the rights of the operators, by providing them a reasonable period of time to allow the phasing out of the products concerned.”