The Food and Public Health Branch has nine sections responsible for a variety of tasks, including food surveillance and certification; exercising import control and conducting inspections and tests on live food animals; as well as assessing risks from certain categories of food and disseminating food safety information. It also assists in the investigation of food poisoning outbreaks that occur at food premises, and advises on food standards and the prevention and control of pests.

Safety Control of Imported Food

With most of Hong Kong's food supplies originating from outside the territory, import controls are an important part of the Department'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 food considered high risk, including game, meat, poultry, milk and frozen confection.

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Safety control of imported food in 2003

As part of the day-to-day task of ensuring food safety, close contact is maintained with local consulates, food authorities in the Mainland and overseas, importers, the Customs and Excise Department and other relevant organisations.

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Food Surveillance

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

During the year, 54,451 samples of food were tested, representing eight samples for every 1,000 people in Hong Kong - much higher than the international reference standard of three samples per 1,000 people.

Food samples undergo microbiological examination, chemical analysis and radioactivity tests, allowing an assessment as to whether or not they conform 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 can be subdivided into two categories:

1. Analysis of pesticide residues in fresh vegetables. Testing parameters include Methamidophos, Isocarbophos, N-Methyl Carbamates, Pyrethroids, and other Organophosphorous pesticides.
2. Analysis of veterinary drug residues in raw milk. Testing parameters include Tetracyclines, Chloramphenicol, ß-lactams, Sulfonamides, Streptomycin, Dihydrostreptomycin, and Trimethoprim.

Monitoring of the veterinary drug residues in milk imported from the Mainland was extended to cover the remaining chemical residues controlled under the final phase implementation of the Harmful Substances in Food Regulations on 31 December 2003.

In September 2003, Hong Kong Accreditation Services granted the Man Kam To Food Laboratory the status of accreditation for the testing of vegetables for pesticide residues and milk for veterinary drug residues under the Hong Kong Laboratory Accreditation Scheme (HOKLAS).

The data collected through the Food Surveillance Programme serves an additional purpose. It is reviewed and analysed regularly to facilitate topical studies to assess the risk of specific foods and long-term planning of food safety strategies.

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Statistics on the Food Surveillance Programme in 2003

(A) Testing of food samples

(B) Enforcement statistics concerning food labelling

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Management of Food Incidents

Staffed by doctors and nurses, the Food Incidents Response and Management Section provides support for conducting in-depth investigation of food poisoning outbreaks involving food premises. To prevent future outbreaks, emphasis is placed on educating food handlers on food, personal and environmental hygiene.

Food incident data are collated and analysed to draw up targeted food safety education programmes for the trade and general public. A total of 409 investigations was carried out by the section in relation to food-borne diseases in 2003. Vibrio parahaemolyticus, Salmonella and Staphylococcus aureus have been identified as the most common causative agents in food poisoning outbreaks related to food premises. Common contributing factors in food poisoning outbreaks identified during investigation are cross contamination of ready-to-eat food by raw food, contamination by food handlers, prolonged storage and inappropriate storage temperatures.

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Safety Control of Live Food Animals

The Veterinary Public Health Section (VPHS) is mainly responsible for import control and conducting diseases and chemical residues surveillance programmes on those live food animals with public health significance. Since the health status of food animals has direct impact on public health, the task of VPHS is substantial.

To implement the concept of 'feed to table', veterinary staff members pay visits to registered livestock farms exporting to Hong Kong to ensure that good husbandry practices are in place. In 2003, 27 million live chickens, ducks, geese and other poultry were imported into Hong Kong. These animals were subjected to normal quarantine and inspection procedures by VPHS staff at various entry points.

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No. of imported food poultry inspected and blood samples tested in 2003

No. of imported food animals inspected in 2003

The Public Health (Animals and Birds) (Chemical Residues) Regulation (Cap. 139) was enacted in 2001 to enhance effectiveness of controlling the use of veterinary chemicals in food animals. The regulation prohibits the use of certain chemicals including clenbuterol and restricts the residue levels of a number of antibiotics in food animals. Some 439 pigs tested positive for prohibited chemicals were destroyed at the slaughterhouses in 2003. The implementation of the final phase of the regulation came into force with the testing for all restricted chemicals. This required the collection of animal tissue samples to ensure the levels were below the approved maximum residue levels.

In 2003, more than 5,000 tissue samples were collected from food animals for testing of veterinary chemicals and disease surveillance.

Moreover, 362 fish samples including coral fish were collected from retail and wholesale markets for ciguatera analysis. Details regarding ciguatera outbreaks and new harvesting zones were sent to importers and fishermen advising them of fishing areas and species that warranted special attention. Regular contacts are maintained with the trade to facilitate the tracing of coral fish consignments whenever necessary.

As for the export of animal products, 63 veterinary health certificates were issued. The total value of such products amounted to HK$38 million for chicken powder and moon cakes to European Union countries, Australia, Canada, and the United States.

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Risk Assessment

Risk assessment is the scientific evaluation of known or potential adverse health effects resulting from human exposure to food borne hazards. It forms the basis of risk communication and risk management in a risk-based food safety control model. Based on the results of risk assessment studies, hazards associated with food or food ingredients are evaluated and their potential risks to the population are assessed. Effective measures are then devised to minimise or reduce the risk. Typical risk assessment consists of four principles - hazard identification, hazard characterisation, exposure assessment and risk characterisation.

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Studies and Projects

As part of its risk assessment work, the Department conducts projects of public health concern involving a comprehensive review and analysis of food-related hazards based on scientific evidence, food production practices and results of laboratory analysis.

During 2003, the department embarked on risk assessment projects on 'Acrylamide in Food', 'Dietary Exposure to Mercury of Secondary School Students' 'Salmonella in Egg and Egg Products', 'Polycyclic Aromatic Hydrocarbons in Barbecued Meat', 'Patulin in Apple Juices' and '3-monochloropropane-1,2-diol in Savoury Products Other Than Soy Sauce'. The last two projects were conducted in collaboration with the Consumer Council.

In addition, a series of papers called 'Risk-in-brief' is published, providing the public and the food trade with information on food safety risks of topical concern. Several issues were released in 2003, and were posted on the Department's website. They included 'Use of Hydrogen Peroxide in Food', 'Risk of Mercury in Fish' and 'Canthaxanthin in Food'.

Food safety incidents, including recalls, originating from outside Hong Kong are also assessed and monitored. The potential risks to the local population are assessed and action taken where necessary. Some 62 incidents were assessed in 2003.

The Department continued its efforts to update the existing food labelling legislation to facilitate customers in making informed healthy food choices, and to ensure the nutritional information presented on food labels is truthful and consistent. In this regard, it conducted a feasibility study and considered that a labelling scheme on nutritional information could be introduced. A public consultation exercise on the proposed labelling scheme was conducted from November 2003 to January 2004.

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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, international food standards established by the Codex Alimentarius Commission, and scientific evaluations performed by internationally recognised authorities, such as the Joint Food and Agriculture Organisation (FAO)/World Health Organisation (WHO) Expert Committee on Food Additives, and the Joint FAO/WHO Meeting on Pesticide Residues serve as the primary references.

Complementing these initiatives is a plan to conduct a population-based food consumption survey to collect up-to-date food consumption information on the people of Hong Kong and to generate a recipe database to improve the risk assessment capacity of the Department.

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Genetically Modified Food

Genetically modified (GM) food is food or a food ingredient that is an organism, or has been derived from an organism in which genetic material has been modified using modern biotechnology. It is a rapidly developing scientific endeavour and is relatively new to many people. To this end, the Department has been delivering information on GM food in an understandable language to the public through a multitude of channels including talks, train-the-trainer workshops, roving exhibitions, pamphlets, GM Food Newsletters and the Department's website, to enhance the public's understanding of the issue.

In addition to public education, the Department also actively examines the science and assesses the potential risks behind biotechnology. Possible regulatory measures for GM food were studied with the aim of safeguarding public health. A Regulatory Impact Assessment study on introducing a labelling scheme for GM food was completed in 2003. The assessment indicated there would be no increase in costs to the food trade under a voluntary labelling scheme. However, there would be some cost increases to the trade, in particular small and medium enterprises, if a mandatory scheme was implemented. The study also identified a number of barriers to the implementation of a mandatory labelling system. The Government considers it more appropriate to introduce a mandatory pre-market safety assessment scheme to ensure the safety of GM food supplemented by a voluntary labelling system for GM food.

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Risk Communication

Risk communication is an integral part, and arguably the most important component, of the food safety regulatory system. It aims to provide the trade and consumers with a clear perception of various kinds of risks and encourages them to play their part in enhancing food safety. It also facilitates a positive and timely response to potential safety hazards.

The Risk Communication Section handles enquiries from the media and the public on food safety issues and publicises results of food surveillance and risk assessment studies through the media, the 'Food Safety Express' web page, and the quarterly publication, Food Safety Bulletins (Consumer and Trade Editions). Resource materials including pamphlets, posters and videos on various topics of food and public health are also produced. During the year, this section, as a new initiative, organised a Food Safety Seminar for the Trade to provide an opportunity for interactive exchange of information and views on food related issues with the food trade. For the general public, it organised with RTHK a radio programme of 12 episodes to promote food safety. To seek views from the public and the trade, It staged two public forums on the Labelling Scheme on Nutritional Information.

The Risk Communication Section also plays an important role in preventing vector-borne diseases. During the year, an Anti-mosquito Campaign with the theme, 'Beware of Dengue Fever, Act Now' was successfully held in collaboration with other government departments. The campaign was launched in three phases and targeted mainly at housing estates, construction sites, public/private schools and hospitals. Supported by talks, exhibitions and other educational material, the campaign has enhanced public awareness on the importance of mosquito control.

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Summary of risk communication activities in 2003

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HACCP-based Food Safety Plan

In 2003, the Department continued its efforts to actively promote the adoption of a Food Safety Plan. FSP is a proactive food safety assurance model based on the principle of Hazard Analysis and Critical Control Point. FSP promotion programmes were devised for specific sectors including premises providing buffets and bakery products. Both managerial and operational staff of the sector were invited to attend the workshops and seminars. Twenty-seven seminars and workshops were organised for the food trade.

The 'Prevent Food Poisoning, Let's Enhance Food Safety' food hygiene campaign held from June to October introduced the concept of food risk and advocated FSP as an important risk management measure for the food trade and the public. Roving exhibitions were also mounted at various locations throughout Hong Kong.

To reach a wider audience, a publicity programme on Hazard Analysis and Critical Control Point was launched from January to June to promote the concept of HACCP . With a better informed public, it is hoped there will be an increased interest from the trade in implementing HACCP.

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Pest Control

The Department is the Government's advisor on pest control. In controlling pests posing threats to public health, the Department adopts an integrated approach, putting equal emphasis on effective use of pesticides and continuous improvement in environmental hygiene. The service regularly updates its control methodologies and technologies, making reference to the World Health Organisation's latest recommendations. The Department works in close partnership with the trade in upholding the professional standards of pest control practices by offering professional support and advice.

Management of Vector-borne Diseases

Working closely with the Department of Health and the Agriculture, Fisheries and Conservation Department, the section serves as an executive arm in the prevention and control of vector-borne diseases.

Investigations are initiated immediately once a disease is reported, and this is followed by appropriate vector control measures.

Control Programmes

Vector-borne diseases including malaria, dengue fever, Japanese encephalitis, plague, scrub typhus, urban typhus and hantaan disease continue to pose a threat to Hong Kong. Of particular concern in 2003 was the report of a local case of dengue fever.

Anti-mosquito Campaign and Dengue Vector Surveillance

Hong Kong was put on alert during the year following a local outbreak of dengue fever in 2002. An inter-departmental territory-wide Anti-mosquito Campaign was launched in three phases. With the concerted efforts of the Department and many others, transmission of dengue fever was curbed, although a local case was reported in October. Anti-mosquito measures continued to place emphasis on eliminating breeding places, particularly improperly disposed containers. Legal action was taken against those who allowed mosquitoes to breed on their premises.

To continuously monitor the situation on the breeding of dengue fever vector, surveillance by ovitraps was conducted monthly at 38 strategic locations. The Ovitrap index obtained from these locations was released to the parties concerned and the public to enhance community participation in controlling the vector and arouse public awareness of the mosquito problem.

Mosquito control work

A long-standing control programme against malaria-transmitting mosquitoes, covering 647 streams, returned favourable results again in 2003. There was no evidence of local transmission of malaria. In line with government policy, some of the control work on streams was contracted out in late 2001 in a bid to promote effective use of resources.

Anti-rodent Campaign

In addition to routine rodent control measures, the Department engaged community participation in its efforts to control rodents in residential areas and on the periphery through the Anti-rodent Campaign. The campaign was promoted through a number of channels including theme talks and exhibitions. It received substantial media and public attention. Some 9,078 rodents were collected during the promotion and enhancement phases of the campaign. Inspections and disinfestations were also carried out on a regular basis to contain rodent problems. During the year, the Department laid poison bait at 9,871 points, set 2,424 traps, and disposed of 40,342 rodents.

Other control programmes

Apart from mosquitoes and rats, the Department also controls by disinfestations other pests that can spread diseases such as flies, fleas, mites, cockroaches and ticks. Staff members are deployed to patrol refuse collection points, rear lanes and black spots to spray insecticides and remove items attracting flies. The Department also provides a service to eliminate wasps' nests.

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Disinfestations of arthropod pests

Risk Assessment and Surveillance

Risk assessment programmes have been put in place to monitor rodent numbers in wharves and godowns, and to monitor infestations of dengue and malaria transmissible mosquitoes throughout Hong Kong.

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Waterfront plague surveillance

To assess the risk of plague transmissions, studies have been carried out on the rat-flea situation. During the year, shopping centres in housing estates were selected for study.

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Rat-flea survey in shopping centres in housing estates

Hong Kong is renowned for its vibrant international airport and 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. Monitoring figures in 2003 demonstrated effective control of these vectors.

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Airport disease vector surveillance