Safety Control of Imported FoodSafety Control of Imported Food in 2009Food Surveillance and Handling Food ComplaintsStatistics on the Food Surveillance Programme in 2009Management of Food IncidentsSafety Control of Live Food AnimalsRisk AssessmentNutrition LabellingFood StandardsGenetically Modified FoodRisk CommunicationHACCP-based Food Safety PlanPest ControlRisk Assessment and Surveillance of MosquitoesRisk Assessment and Surveillance of RodentsAirport Disease Vectors SurveillanceCross-boundary Co-operationOther Pest Control Programmes

To enhance food safety regulatory functions and meet the growing expectations for better food safety standards, the Centre for Food Safety (CFS) was established in 2006.

The CFS has nine sections responsible for various tasks, including food surveillance and certification, exercising import control and conducting inspections and tests on live food animals, assessing risks of certain categories of food, and disseminating food safety information. It also investigates food poisoning outbreaks on food premises and advises on food standards.

Safety Control of Imported Food

As most food supplies originate from outside Hong Kong, import control is an important part of the CFS's work.

The control process - comprising a pre-entry licensing system, verification of health documents and surveillance at import control points - basically applies to certain categories of high-risk food, such as game, meat, poultry, milk and frozen confections.

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Safety Control of Imported Food in 2009

Applications approved for import licence for frozen/chilled meat and poultry 96,014
Applications approved for import of game, meat and poultry 2,359
Applications approved for import of milk and milk products 202
Applications approved for import of frozen confections 154
Number of vehicles carrying vegetables inspected by the Man Kam To Food Control Office 28,656

Part of the day-to-day task of ensuring food safety involves close liaison with consulates, Mainland and overseas food authorities, importers, the Customs and Excise Department and other relevant organisations.

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Food Surveillance and Handling Food Complaints

Continuous monitoring, testing and law enforcement are keys to ensuring the safety of Hong Kong's food supplies. Food samples are tested at every stage in the supply process: from import and manufacture to wholesale and retail.

During the year, 64,460 samples of food were taken for testing, which is about nine samples for every 1,000 people in Hong Kong.

Food samples undergo microbiological examinations, chemical analyses and radioactivity tests to assess their conformity to legal standards and labelling requirements.

The Man Kam To Food Laboratory provides expeditious and comprehensive testing services, mainly on fresh produce imported from the Mainland. The testing services are divided into three categories:

  1. Analysis of pesticide residues in fresh vegetables and fruits. Testing parameters include Methamidophos, Isocarbophos, N-Methyl Carbamates, Pyrethroids, and other Organophosphorous pesticides.
  2. Analysis of veterinary drug residues in raw milk, imported freshwater fish and chilled pork. Testing parameters include Aminoglycosides, ß-lactams, Clenbuterol, Macrolides, Malachite Green, Polypeptides, Quinolones, Sulfonamides, Tetracyclines, Lincomycin, Spectinomycin, Trimethoprim, Chloramphenicol and synthetic hormones.
  3. Analysis of melamine in samples of raw milk and pasteurised milk imported from the Mainland.

    The data collected through the Food Surveillance Programme serves an additional purpose. The information is reviewed and analysed regularly to help topical studies, assess the risk of specific foods and formulation of food safety strategies.

In 2009, a total of 4,227 food complaints were handled.

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Statistics on the Food Surveillance Programme in 2009

(A) Testing of food samples

Testing Number Percentage
Chemical (including toxicity)
Test conducted 45,584 -
Satisfactory 45,422 99.6%
Microbiological
Test conducted 15,573 -
Satisfactory 15,520 99.7%
Radioactivity
Test conducted 1,718 -
Satisfactory 1,718 100%

(B) Enforcement of food labelling

Food labels inspected 55,118
Written warnings issued 96
Prosecutions taken out 48

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Management of Food Incidents

The CFS monitors food incidents, both local and overseas. Around 750 food incidents were identified in 2009. Upon identifying food incidents, the CFS will consider factors such as risk to consumers, local regulations and availability of the concerned food product before deciding on the most appropriate risk management actions. Besides, the CFS will communicate with related health authorities, importers and distributors on the food incidents. If necessary, the CFS will take actions such as to request the trade to stop sale, conduct testings, issue warning letters, recall products etc. The CFS will issue rapid alert to traders and inform them about the most updated situation, and also issue press releases to advise consumers to stop consuming the affected products if they are locally available. In 2009, the CFS had issued about 330 trade alerts and more than 30 press releases on food incidents.

Staffed by doctors and nurses, the Food Incidents Response and Management Unit of the Risk Management Section (RMS), in collaboration with the Centre for Health Protection, investigates outbreaks of food poisoning and food-borne infectious diseases on food premises, identifies the contributing factors and assists in tracing sources of suspected food. The unit also educates the food handlers about food, personal and environmental hygiene. Around 380 investigations were carried out by the unit into food-borne diseases in 2009. Vibrio parahaemolyticus, Salmonella and Staphylococcus aureus were the most common causative agents in food poisoning outbreaks related to food premises. Common contributing factors identified during investigations included cross contamination of ready-to-eat food by raw food, prolonged storage or inappropriate storage temperatures, inadequate cooking, raw food consumed or contaminated raw food, and contamination by food handlers.

The CFS worked closely with the food caterers and organisers of the 2009 East Asian Games held in Hong Kong to ensure food safety ahead of and throughout the events. A dedicated "Food Safety Advisory Team" was established to work with designated caterers for hotels, competition venues and celebrating venues and assist them to develop safe menus and implement effective food safety systems. Furthermore, risk-based enforcement inspections to licensed premises at events venues and tourist areas were strengthened. A targeted food surveillance programme was conducted and about 2,000 food samples were collected for microbiological and chemical analysis and all samples results were satisfactory. Food safety seminars and training workshops were also conducted for more than 2,000 catering providers, food handlers and volunteers.

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Safety Control of Live Food Animals

The Veterinary Public Health Section (VPHS) and the Slaughterhouse (Veterinary) Section (SH(V)S) are mainly responsible for import control and conducting disease surveillance programmes on live food animals with public health significance.

Implementing the concept of "from farm to table", veterinary staff members visit registered farms exporting to Hong Kong to ensure that good husbandry practices are in place. In 2009, VPHS inspected a total of 64 registered farms and 15 processing plants in the Mainland. These included farms of chickens, ducks, pigeons, geese, pigs, fish, hairy crabs and other shellfish.

During the year, 3.7 million live chickens and other poultry were imported into Hong Kong. These animals were subjected to quarantine and inspection procedures by VPHS staff at the designated entry point, Man Kam To Control Point.

Number of imported food poultry inspected and blood samples tested in 2009

Type of poultry No. of poultry imported No. of blood samples tested No. of animal health certificates verified
Chickens and other poultry 3,723,250 44,213 2,327

Number of local and imported food animals inspected in 2009

Type of animal No. of animals inspected No. of animal health certificates verified
Pigs 1,682,028 39,421 health certificates and
8,974 admission forms for local pigs
Cattle 28,523 2,601 health certificates and
2 admission forms for local cattle
Goats 12,036 111 health certificates
No. of urine samples collected in food animals for testing of prohibited and restricted chemicals 49,148

The Public Health (Animals and Birds) (Chemical Residues) Regulation prohibits the use of certain chemicals, including clenbuterol, and restricts the residue levels of a number of chemicals in food animals. During the year, 7,166 tissues and blood samples were collected from food animals for testing of veterinary drug residues and for disease surveillance. One consignment of pigs was tested positive for prohibited chemicals during the routine urine screening.

The Quarantine Detector Dog Unit is responsible for interdicting raw meat smuggling at all land border control points by means of hand-carry by inbound passengers as well as mass transit by trucks. The unit serves to safeguard public health by avoiding meats from unknown sources which may contain contagious and zoonotic pathogens such as E. coli O157 and avian influenza, to be imported into Hong Kong. There are four quarantine detector dogs in the unit. In 2009, a total of 200 illegal meat import cases were detected.

Types of raw meat and number of cases detected by quarantine detector dogs in 2009

Types of raw meat No. of cases Quantity (kg)
Meat 83 204.9
Poultry 19 47.19
Assorted Meat and Poultry 98 543.32

Subsequent to a series of food poisoning cases associated with the consumption of coral fish, a voluntary Code of Practice on the Import and Sale of Live Marine Fish for Human Consumption has been developed in consultation with the trade and put in place since December 2004. Under the code, traders will avoid the import and sale of high risk fish, keep transaction records of all live marine fish for at least 60 days, and report to the CFS every import of live coral fish within 48 hours of arrival.

For the export of food products of animal origin, 88 veterinary health certificates were issued for products such as chicken powder, ice-cream, fishery products, mooncakes and instant noodle. The value of these products totalled $59.3 million. They were exported to Australia, Canada, the European Union, Indonesia, the Mainland, Macao, New Zealand, Singapore and the US.

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Risk Assessment

Risk assessment forms the scientific basis, in a risk-based food safety control model, for risk management and risk communication. It includes systematic estimation and evaluation of the likelihood and severity of the adverse health effects resulting from exposure to food-borne hazards based on the best available scientific evidence. A typical risk assessment consists of four steps - hazard identification, hazard characterisation, exposure assessment and risk characterisation.

Researches, projects and literature studies are part of the CFS's risk assessment work. In addition, food safety incidents and issues, both inside and outside Hong Kong, are monitored and assessed on a daily basis. These allow the CFS to respond promptly and proactively in order to protect the public from exposing to hazards that are considered as harmful to humans.

Risk Assessment Projects

During 2009, the CFS embarked on several risk assessment projects, namely: "Nitrate and Nitrite in Vegetables Available in Hong Kong", "Iodine Content in Local Foods", "Literature Review on Nanotechnology and Food Safety", "Hepatitis E Virus in Fresh Pig Livers", "Microbiological Quality of Chinese Cold Dishes in Hong Kong" and "Sugars Content of Prepackaged Non-alcoholic Beverages in Hong Kong".

Information on food risk is provided to the public through a series of "Risk-in-brief" (RIB) papers, which are posted on the CFS website. In 2009, new issues of RIB included "Milk Basic Protein in Food", "Human Swine Influenza (Influenza A/H1N1) and Food Safety" and "Food Safety for People with Lower Immunity". The RIB on "Dioxins in Food", "Use of Boric Acid and Borax in Food", "Red 2G in Food", "Canthaxanthin in Food", "Steviol Glycosides in Food", "Use of Sulphur Dioxide in Fresh Meat" and "Formaldehyde in Food" were updated.

Food Consumption Survey

The Government has commissioned the first territory-wide population-based Food Consumption Survey to the Chinese University of Hong Kong to collect information on the food consumption patterns of the general public. The data collected from the survey was being analysed. Results of the survey can enhance the capacity of risk assessment work and facilitate the conduct of the Total Diet Study.

Total Diet Study

Total Diet Study (TDS) is internationally recognised as the most cost-effective way to estimate the dietary intake of a range of chemicals or nutrients of different population sub-groups. It allows the CFS to proactively assess whether specific chemicals would pose a risk to public health. In addition, it provides a scientific basis for formulating food safety strategies, undertaking surveillance and monitoring of food and food products, establishing regulatory standards for food and identifying deficiencies in the food safety regulatory regime. Moreover, as TDS also measures the amount of chemicals ingested by people of different age and sex groups, it enables the identification of the population groups that are most vulnerable and facilitates the formulation of action plans tailor-made for these groups. A Task Force on Total Diet Study consisting of members from various government departments has been formulating the details of the first TDS in Hong Kong. The Government has commissioned the Food Research Centre of the Chinese University of Hong Kong to conduct the field work of food sampling and preparation which will commence in March 2010 and last for a year.

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Nutrition Labelling

To assist consumers to make healthier food choices, encourage the trade to adopt sound nutritional principles in food production and regulate misleading or deceptive nutrition claims, the Government has proposed a Nutrition Labelling Scheme. The Food and Drugs (Composition and Labelling)(Amendment : Requirements for Nutrition Labelling and Nutrition Claim) Regulation 2008 was enacted by the Legislative Council on 28 May 2008 and will come into effect on 1 July 2010.

In order to assist the trade and laboratory service producers to understand and comply with the Scheme, on-line resources including technical guidance notes, frequently asked questions and answers, Nutrition Label Calculator, telephone hotline and helpdesk service are provided to traders. Moreover, 10 trade workshops were conducted and three seminars and eight technical workshops focusing on laboratory testing methods were held during the year. A briefing session was also organised in the Mainland in October to brief regulatory officers about the requirements of the Scheme. A Working Group on Nutrition Labelling comprising representatives from the trade, laboratories and the Government was set up with a view to identifying and tackling difficulties faced by the trade in complying with the Amendment Regulation, and to enhancing communication. The CFS started to receive applications for Small Volume Exemption (SVE) for Nutrition Labelling since September 2009. As at end December 2009, over 13,000 applications were processed timely.

On the education front, a three-year publicity and education campaign, steered by the Task Force on Nutrition Labelling Education, was launched in March in order to promote the use of nutrition labels in achieving healthy eating.

Nutrient Information Inquiry System

The Nutrient Information Inquiry System (NIIS) is a web-based searchable database containing the nutrient information of over 4,300 commonly consumed food items. Since June 2007, a Food Nutrient Calculator was incorporated to promote public awareness of and ability in choosing healthy foods. It can automatically generate nutrient information of various food items that the users are interested in and this is a function that cannot be served by ordinary food composition tables. The NIIS is currently being updated with the latest nutrient profiles from different overseas databases and local studies, and being enhanced to include more nutrients that are of public concerns.

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Food Standards

Setting food standards is an integral part of risk management in food safety. In setting new local food standards, the CFS takes reference from international food standards established by the Codex Alimentarius Commission, and scientific evaluations performed by internationally recognised authorities, such as the Joint Food and Agriculture Organization (FAO) of the United Nations/World Health Organization (WHO) Expert Committee on Food Additives, and the Joint FAO/WHO Meeting on Pesticide Residues.

To better protect public health, facilitate effective regulatory control of pesticide residues in food and promote harmonisation between local and international standards, the Government proposed to introduce a new subsidiary legislation to govern pesticide residues in food. The CFS conducted a public consultation on the proposed regulatory framework from November 2007 to January 2008. The CFS and the European Commission jointly organised a 2-day Regional Symposium on Regulation of Pesticide Residues in Food on 27 and 28 March to inform the participants the latest development in the regulation of pesticide residues in food in the international arena. A total of seven distinguished speakers from the European Union, the Mainland and other overseas food safety authorities were invited to share their experience. There were more than 140 participants from the food trade, academics and government departments. The CFS is now refining the proposed regulatory framework taking into account comments and views collected from the public consultation and the regional symposium.

In 2007, the CFS started the standard setting work on the veterinary drug residues in food. A Working Group comprising representatives from various government departments and members of the Expert Committee on Food Safety was formed to formulate the legislative framework.

In 2009, the CFS commenced new work to add new sweeteners to the Sweeteners in Food Regulations and reviewed the local standards for shellfish toxins and mycotoxins in food.

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Genetically Modified Food

Genetically modified (GM) food refers to food or a food ingredient that is, or is derived from, an organism in which genetic material has been modified using modern biotechnology. According to the WHO, GM foods currently available on the international market have passed risk assessments and are not likely to present risks to human health.

Since July 2006, the CFS has issued "Guidelines for Voluntary Labelling of GM Food" to the trade, encouraging the trade to adopt a voluntary labelling system for GM food. In 2009, two quantitative GM food testing methods have been developed in the capacity building programme in collaboration with the Government Laboratory. The CFS also focuses on public education on GM food. Relevant information is conveyed to the public through different channels including training workshops and the GM Food Newsletter.

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Risk Communication

Effective communication with stakeholders is of pivotal importance in the area of food safety. Recognising that communication is a two-way process and tripartite collaboration among the food trade, the public and the Government is vital in upholding food safety in Hong Kong, the Risk Communication Section organises interactive promotional and publicity programmes to enable the food trade and the public to play their part in maintaining food safety.

To tie in with the enactment of the Food and Drugs (Composition and Labelling) (Amendment: Requirements for Nutrition Labelling and Nutrition Claim) Regulation 2008, a three-year publicity and education campaign was launched to drive home the benefits of the Nutrition Labelling Scheme and enhance public understanding on how to read nutrition labels and make use of such information to maintain a healthy diet. A Task Force on Nutrition Labelling Education, comprising representatives from professional organisations, trade, consumers, academia and government departments, has been formed to oversee the campaign.

Appropriate means and channels of communication have been adopted to ensure that the health messages are penetrated effectively to the various target audiences. The means and channels range from (i) Nutrition Labelling Teaching Kit, posters, pamphlets, pocket-size shopping guide to education television, on-line games and resources; (ii) group briefing sessions, roving exhibitions and health talks to mass media programmes like newspaper articles, radio and television announcements in the public interests and poster advertisements in the public transport system. The Food Safety Day 2009 with the theme on nutrition labelling formed the highlight of the campaign in the year.

With a view to pooling efforts in the community for motivating people to adopt good practices to enhance food safety, the CFS invited food trade associations and licensed food premises to sign up to the Food Safety Charter 2009 to promote and practise the Five Keys to Food Safety, namely choose, clean, separate, cook and safe temperature. A recognition scheme was introduced in 2009 to recognise the continual support of the food trade in ensuring food safety. Promotional activities included Food Safety Charter Presentation Ceremony, poster advertisements in the public transport system and roving exhibitions. Public can identify the signatories by the Food Safety Charter certificates and stickers shown in their food premises and the badge worn by their staff.

The Food Safety Seminar for Trade is a biennial function organised by the CFS aiming to provide a forum for interactive exchange of information and views on current and important food safety issues in Hong Kong between the food trade and the Government. At the seminar held in September, the CFS briefed the trade on various food safety issues that were of concern; updated the latest regulatory requirements and guidelines on food safety in Hong Kong and introduced new initiatives and programmes on food safety.

Trade consultation forums are held regularly to exchange latest information, views and developments on food safety between the food trade and the Government. The Consumer Liaison Group provides a platform for CFS to collect suggestions and comments from the public on various food safety issues. Focus group meetings are held regularly on different food safety topics to facilitate the CFS's understanding of public knowledge, belief and risk perception to tailor the risk communication messages.

Through other channels, the public and the trade are kept informed of various food safety issues in a timely and proactive manner. The "Rapid Alert System" delivers prompt email/fax messages to the food trade explaining food incidents, providing advice and enquiry phone numbers. Food alerts are issued on the CFS website and via electronic means when food incidents of concern are identified. The monthly electronic newsletter "Food Safety Focus" posted on the CFS website covers current local and overseas food safety issues and the actions undertaken by the CFS. It also provides professional and easy-to-understand information on various food hazards and their public health risks. Quarterly printed publications, "Food Safety Bulletin" and "Food Safety Express", target the general public and the trade respectively. Seasonal food safety tips are regularly updated and posted on the CFS website.

The section handles enquiries from the media and the public on food safety. It also publicises the results of food surveillance and risk assessment studies and relevant health advice. Other educational resource materials such as pamphlets, posters and exhibition boards on various food safety topics are regularly produced and uploaded onto the CFS website.

Starting from 2009, the CFS issued the Food Safety Reports monthly instead of bimonthly. In addition, reports on five Seasonal Food Surveillance, 10 Targeted Food Surveillance and three Surveys on Popular Food Items were also issued in 2009:

Seasonal Food Surveillance:

Targeted Food Surveillance:

Survey on Popular Food Items:

Summary of Risk Communication Activities in 2009

Item 2005 2006 2007 2008 2009
No. of educational/publicity programmes organised 13 13 13 15 14
No. of resource materials (printed material, audio-visual materials) produced 48 46 60 63 114
Total attendance at public education/communication activities 154,556 175,278 186,046 180,000 173,908
No. of public enquiries handled 1,939 2,466 4,868 14,230 7,524
No. of Hazard Analysis and Critical Control Point (HACCP) seminars/workshops 29 31 33 33 33

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HACCP-based Food Safety Plan

The adoption of a food safety plan (FSP) was continually promoted during the year. The FSP is a proactive food safety assurance model based on the principles of Hazard Analysis and Critical Control Point (HACCP). Promotional programmes are devised for specific trade sectors, including school lunch-box and "poon choi" suppliers, caterers for elderly homes and child-care centres and food premises selling sushi, sashimi, raw oyster and meat to be eaten raw. Workshops and seminars are organised for managerial and operational staff of the target groups.

Members of the public have also been included in the publicity exercise, as a better informed public is an added incentive for the trade to implement HACCP principles.

Food hygiene seminars were held from July to December to introduce the concept of food risk and to highlight the FSP as an important risk management measure for the trade and the public.

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Pest Control

The FEHD is the Government's adviser on pest control matters affecting public health. In meeting this goal, the Department adopts an integrated approach, putting equal emphasis on the effective use of pesticides and continuous improvements in environmental hygiene. It regularly updates its control methodologies and technologies, making reference to the WHO's latest recommendations. The Department works closely with the trade in upholding the professional standards of pest control practices by offering professional support and advice.

Management of vector-borne diseases

Vector-borne diseases, including malaria, dengue fever, Japanese encephalitis (JE), plague, scrub typhus, urban typhus, spotted fever and hantaan disease, continue to pose a threat to Hong Kong. Working with the Department of Health, the Agriculture, Fisheries and Conservation Department and the Home Affairs Department, the FEHD serves as an executive arm in the prevention and control of vector-borne diseases. Investigations are initiated immediately once a disease is reported, followed by appropriate vector control measures. There was no report of local transmission of dengue fever and JE during the year.

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Risk Assessment and Surveillance of Mosquitoes

Hong Kong is under the constant threat of dengue fever. Mosquito breeding grounds in the community and the port areas are monitored continually. The ovitrap indices obtained from these locations are released to the parties concerned and the public to increase community participation in controlling the vector and heighten awareness of the mosquito problem. In 2009, the average ovitrap index recorded in the community was 6.2%. The highest Monthly Average Ovitrap Index (MOI) recorded in the community was 19.0% (in June) and the highest port MOI was 1.5% (in June). These reflected that mosquito problem was under control. In addition, a long-standing control programme against malaria-transmitting mosquitoes, covering some 600 streams, returned favourable results in 2009, revealing no evidence of local transmission of malaria.

During the year, the Department conducted 705,653 inspections with 76,526 mosquito breeding places found, 164 warning letters issued, and 53 summonses taken out. Legal action was taken against those who allowed mosquitoes to breed on their premises.

Anti-mosquito campaign

An inter-departmental Anti-mosquito Campaign was launched in three phases in 2009. Anti-mosquito measures were strengthened with educational and publicity work, and there was a continued emphasis on eliminating breeding places.

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Risk Assessment and Surveillance of Rodents

To understand rodent infestation, rodent infestation surveys have been conducted since 2000. The Rodent Infestation Rate (the percentage of bait consumed by rodents, obtained from different places at different times) is used to assess rodent problems at different places so as to take prompt action to prevent its proliferation. The overall Rodent Infestation Rate obtained in 2009 was 6.1% which indicated that rodent problem was under control.

Inspections and disinfestations are also carried out regularly to contain rodent problems. During the year, the Department handled 7,063 reports of rodent problems with 55 written warnings issued, and collected 31,863 dead rodents (6,828 trapped and 25,035 poisoned). More than 9,300 rat holes were eliminated.

Moreover, studies were carried out in typhoon shelters on the rat-flea situation to assess the risk of plague transmission in 2009. The rat-flea index was found to be 0.48. (The WHO states that a Rat-flea Index greater than 1 represents an increased plague risk for humans if the plague bacillus was introduced into a country or region.)

Anti-rodent campaign

In addition to routine rodent control measures, the Department engages community participation in its efforts to control rodents through the territory-wide inter-departmental Anti-rodent Campaign. The campaign was promoted through a number of channels including theme talks and exhibitions.

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Airport Disease Vectors Surveillance

Hong Kong is renowned for its vibrant international airport. To ensure that it is free from dengue fever and plague vectors, monitoring stations have been set up at various points in accordance with international health regulations. In 2009, 747 mosquito surveys were conducted, 41 advisory letters were issued, and the relevant rat-flea index was zero.

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Cross-boundary Co-operation

As infectious diseases know no physical boundaries, closer ties have been established among Guangdong Province, Macao and Hong Kong in the fight against such diseases and the disease vectors. In addition to regular meetings between the parties at senior administrative and professional levels, an exchange programme involving professionals from Guangdong and Hong Kong is in place to promote mutual understanding and cross-fertilisation of expertise. Information on disease vectors surveillance in port areas is also exchanged regularly.

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Other Pest Control Programmes

Other than mosquitoes and rats, the Department controls, by disinfestations, other pests such as flies, fleas, mites, cockroaches, ants, wasps and ticks. In 2009, 126,282 disinfestation operations using pesticides were carried out. Staff are deployed to patrol refuse collection points, rear lanes and hygiene black spots to spray insecticides, as necessary, and remove items attracting flies.

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