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; 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
As most food supplies originate from outside Hong Kong, 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.
Safety Control of Imported Food in 2004
| Applications approved for import licence for frozen/chilled meat and poultry | 56,248 |
| Applications approved for import of game, meat and poultry | 3,381 |
| Applications approved for import of milk and milk products | 135 |
| Applications approved for import of frozen confection | 166 |
| Number of vehicles carrying vegetables inspected at Man Kam To Food Control Office | 41,658 |
Part of the day-to-day task of ensuring food safety involves close contact with local consulates, food authorities in the Mainland and overseas, importers, the Customs and Excise Department and other relevant organisations.
Food Surveillance
Continuous monitoring, testing and enforcement activities are the key to ensuring the safety of Hong Kong's food supplies. Food samples are tested at every stage of the supply process: from import and manufacture to the wholesale and retail stages.
During the year, 61,181 samples of food were tested, representing eight samples for every 1,000 people in Hong Kong.
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.
In addressing public concern about food safety and to further improve the existing food surveillance programme, the Department has been taking some 500 additional food samples each month for chemical testing since October 2004.
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:
(i) Analysis of pesticide residues in fresh vegetables. Testing parameters include Methamidophos, Isocarbophos, N-Methyl Carbamates, Pyrethroids, and other Organophosphorous pesticides.
(ii) Analysis of veterinary drug residues in raw milk. Testing parameters include Aminoglycosides, ß-lactams, Macrolides, Polypeptides, Quinolones, Sulfonamides, Tetracyclines, Lincomycin, Spectinomycin, Trimethoprim and Chloramphenicol.
In August 2004, the Hong Kong Accreditation Services made a re-assessment visit to the Man Kam To Food Laboratory. The laboratory succeeded in re-affirming its accreditation status and extending its accreditation scope to cover the testing of vegetables and milk for more pesticide residues and veterinary drug residues respectively, under the Hong Kong Laboratory Accreditation Scheme (HOKLAS).
The data collected through the Food Surveillance Programme serve an additional purpose. The information is reviewed and analysed regularly to facilitate topical studies to assess the risk of specific foods and long-term planning of food safety strategies.
Statistics on the Food Surveillance Programme in 2004
(A) Testing of food samples
| Testing | Number | Percentage |
|---|---|---|
| Chemical (including toxicity) | ||
| Test reports received | 37,701 | - |
| Satisfactory | 37,565 | 99.6% |
| Microbiological | ||
| Test reports received | 22,579 | - |
| Satisfactory | 22,324 | 98.9% |
| Radioactivity | ||
| Test reports received | 1,994 | - |
| Satisfactory | 1,994 | 100% |
(B) Enforcement statistics concerning food labelling
| Food labels inspected | 55,202 |
| Written warnings issued | 41 |
| Prosecutions taken out | 95 |
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. Emphasis is placed on educating food handlers on food, personal and environmental hygiene to prevent future outbreaks.
Food incident data are collated and analysed to draw up targeted food safety education programmes for the trade and general public. A total of 715 investigations were carried out by the section on food-borne diseases in 2004. Vibrio parahaemolyticus, Staphylococcus aureus and Salmonella have been identified as the most common causative agents in food poisoning outbreaks related to food premises. Common contributing factors identified during investigation are cross contamination of ready-to-eat food by raw food, contamination by food handlers, prolonged storage and inappropriate storage temperatures.
Safety Control of Live Food Animals
The Veterinary Public Health Section (VPHS) is mainly responsible for import control and conducting disease and chemical residue surveillance programmes on live food animals with public health significance. Since the health status of food animals has a direct impact on public health, the tasks of the section are substantial.
Implementing the concept of 'feed to table', veterinary staff members visit registered livestock farms exporting to Hong Kong to ensure that good husbandry practices are in place. During the year, 11 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.
No. of imported food poultry inspected and blood samples tested in 2004
| Type of poultry | No. of poultry imported | No. of blood samples tested | No. of animal health certificates verified |
|---|---|---|---|
| Chickens and other poultry | 10,672,924 | 97,761 | 5,233 |
| Waterfowl (Ducks & Geese) | 10,951 | 330 | 22 |
No. of local and imported food animals inspected in 2004
| Type of animal | No. of animals inspected | No. of animal health certificates verified |
|---|---|---|
| Pigs | 2,251,207 | 40,070 (health certificate) + 26,846 (admission forms for local pigs) |
| Cattle | 47,667 | 4,338 |
| Goats | 6,797 | 62 |
| No. of urine samples collected in food animals for testing of prohibited and restricted chemicals | 65,893 |
As a measure to improve the effectiveness of controlling the use of veterinary chemicals in food animals, the Public Health (Animals and Birds) (Chemical Residues) Regulation (Cap. 139) was enacted in 2001. The regulation prohibits the use of certain chemicals including clenbuterol and restricts the residue levels of a number of antibiotics in food animals. A total of 604 pigs tested positive for prohibited chemicals were destroyed at the slaughterhouses in 2004. 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.
During the year, 5,761 tissues and blood samples were collected from food animals for testing of veterinary chemicals and disease surveillance.
Subsequent to a series of food poisoning cases during the year associated with the consumption of coral reef fish, a voluntary Code of Practice on the Import and Sale of Live Marine Fish for Human Consumption was developed in consultation with the trade and put in place in December. Under the new code, traders are required to 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 FEHD every import of live coral fish within 48 hours of arrival.
For the export of food products of animal origin, 89 veterinary health certificates were issued. The value of these products, such as chicken powder and moon cakes, totalled $65 million. They were exported to European Union countries, Australia, Canada, the United States of America, New Zealand and Macau.
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 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.
Studies and Projects
As part of its risk assessment work, the Food and Environmental Hygiene Department conducts projects of public health concern which involve a comprehensive review and analysis of food-related hazards based on scientific evidence, food production practices and results of laboratory analysis.
During 2004, the Department embarked on risk assessment projects on 'Dietary Exposure to Lead of Secondary School Students', 'Vibrio Species in Seafood', 'Nutrient Values of Chinese Dim Sum', 'Food Safety and Microwave Cooking','Sweeteners in Confectionery Products' and ' Study on Salts in Hong Kong'. The last two projects were conducted in collaboration with the Consumer Council.
In addition, a series of 'Risk-in-brief' papers is published, providing the public and the food trade with information on food safety risks of concern. Several issues were released in 2004 and were posted on the Department's website. They included 'Enterobacter sakazakii in Powdered Infant Formula' and the 'Risk of Polycyclic Aromatic Hydrocarbons (PAHs) in Barbecued Meats'.
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 73 incidents were assessed in 2004.
The Department continued its efforts to update the existing food labelling legislation to help customers make informed healthy food choices, and to ensure the nutritional information presented on food labels is truthful and consistent. In this context, it completed a feasibility study and consultation exercise on the Labelling Scheme on Nutrition Information in 2001-02 and 2003-04, respectively. To further assess the impact of the proposed scheme, a Regulatory Impact Assessment (RIA) study was conducted in 2004-05. The administration plans to report the results of the consultation exercise and RIA study to the Legislative Council (LegCo) Panel on Food Safety and Environmental Hygiene before mid-2005.
Complementing these initiatives, a population-based survey is conducted to collect up-to-date information on food consumption data of Hong Kong people and to generate a recipe database to improve the Department's risk assessment capacity. The 30-month survey will be completed in September 2006.
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.
Genetically Modified Food
Genetically modified (GM) food is described as 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. As such, 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 examines the science behind biotechnology and assesses the potential risks. According to statements issued by the WHO, GM foods currently available on the international market have passed risk assessments and are not likely to present risks to human health. In view of the community's preference for consumer information, the Department encourages the trade to adopt a voluntary labelling system for GM food. At the same time, it keeps in view any further recommendations on GM food labelling promulgated by Codex.
Risk Communication
Risk communication is an integral part 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 improving food safety. It also facilitates a positive and timely response to potential safety hazards.
From July to November 2004, the "Food Safety Day 2004" campaign was organised to promote awareness and participation of the public and the trade in food safety. The initiative was launched on July 10 with a Food Safety Roadshow co-organised with Radio Television Hong Kong (RTHK). The programme consisted of a variety show with celebrities and artistes, games, souvenirs and an exhibition. The event proved very popular. Other educational programmes for "Food Safety Day" included a series of promotional television films on food safety , a Colouring Competition for primary students and a Poster Design Competition for secondary students with over 28,000 entries; health messages on MTR trains; a series of Food Hygiene Seminars targeting food business personnel, caterers, teachers, foreign domestic helpers and members of the public; and roving exhibitions in various districts.
The Risk Communication Section handles enquiries from the media and the public on food safety issues. It also publicises health advice and the results of food surveillance and risk assessment studies through the media; the "Seasonal Food Safety Tips" and the "Food Safety Files" on the department's website; and the quarterly departmental publication, the "Food Safety Bulletin "(separate versions for consumers and the trade available). Other resource materials used are pamphlets, posters and videos on various food and public health topics.
The section plays a significant role in preventing vector-borne diseases. The Anti-mosquito Campaign's "Beware of Dengue Fever. Act Now" programme was successfully held in collaboration with other departments. The campaign itself was launched in three phases and targeted mainly housing estates, construction sites, schools and hospitals. It was supported by talks, exhibitions and other educational material to improve public awareness on the importance of controlling mosquitoes.
Summary of Risk Communication Activities in 2004
| Item | 2003 | 2004 |
|---|---|---|
| No. of educational / publicity programmes organised | 13 | 13 |
| No. of resource materials (printed materials, audio-visual materials) produced | 68 | 46 |
| Total attendance at public education / communication activities | 159,968 | 151,285 |
| No. of public enquiries handled | 1,050 | 1,587 |
| No. of HACCP seminars /workshops | 27 | 29 |
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 HACCP. Promotion programmes were devised for specific sectors including the bakery industry and premises installed with fish tanks. Managerial and operational staff of the target groups were invited to attend the workshops and seminars. Twenty-nine seminars and workshops were organised for the food trade.
Members of the public were also included in the publicity exercise to reach a wider audience. A better informed public is an added incentive to the trade to implement HACCP principles. In addition, the Department has produced a series of television programmes promoting HACCP.
Food Hygiene Seminars were held from July to November to introduce the concept of food risk and to highlight the Food Safety Plan as an important risk management measure for the trade and the public. Roving exhibitions were mounted at strategic locations throughout Hong Kong.
Pest Control
The FEHD is the Government's adviser on the importance to public health of controlling pests. In meeting this goal, the Department adopts an integrated approach, putting equal emphasis on 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 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 Departments of Health, Agriculture, Fisheries and Conservation and Home Affairs, 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, and this is followed by appropriate vector control measures.
Control programmes
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. Of particular concern in 2004 was the report of five local cases of JE.
Anti-mosquito Campaign and dengue vector surveillance
Hong Kong was under the constant threat of dengue fever. An inter-departmental Anti-mosquito Campaign was launched in three phases. As a result of concerted efforts by the Department and many others, no local transmission of dengue fever was reported during the year. 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.
Apart from continually monitoring mosquito breeding grounds in the community, the surveillance by ovitraps was extended to the port areas. The Ovitrap indices obtained from these locations were released to the parties concerned and the public to heighten community participation in controlling the vector and stimulate awareness of the mosquito problem.
Mosquito control work
| No. of inspections | No. of mosquito breeding places found | No. of warning letters issued | No. of summonses taken out |
|---|---|---|---|
| 529,810 | 55,037 | 751 | 253 |
A long-standing control programme against malaria-transmitting mosquitoes, covering some 600 streams, returned favourable results again in 2004. There was no evidence of local transmission of malaria. In line with government policy, some of the control work along 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 cargo working areas and warehouses and in surrounding areas 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 5,415 rodents were collected during the promotion and enhancement phases of the campaign. Inspections and disinfestations were also carried out regularly to contain rodent problems. During the year, the Department handled 5,493 complaints with 178 written warnings issued, six prosecutions taken out and 31,871 (1,603 trapped and 30,268 poisoned) dead rodents collected. More than 15,600 rat holes were destroyed.
Other control programmes
As well as mosquitoes and rats, the Department controls, by disinfestations, other pests that can spread diseases such as flies, fleas, mites, cockroaches and ticks. Staff are deployed to patrol refuse collection points, rear lanes and black spots to spray insecticides as necessary and remove items attracting flies. The Department also provides services for eliminating wasp nests which affect the daily lives of the public.
Disinfestations of Arthropod Pests
| Fleas | Wasps | Mites | Biting midges | Cockroaches | Flies | Others | |
|---|---|---|---|---|---|---|---|
| No. of disinfestation operations using pesticides | 1,754 | 9,002 | 6 | 57 | 126,423 | 26,982 | 341 (ants, moths, ticks, bedbugs & miscellaneous) |
Risk assessment and surveillance
Risk assessment programmes have been put in place to monitor both rodent numbers in wharves and godowns, and the infestations of dengue and malaria transmissible mosquitoes throughout Hong Kong. Over 550 surveys were conducted at wharves and godowns in 2004.
Waterfront Plague Surveillance
| Cargo working areas | Rat-flea Index | No. of rodents collected |
|---|---|---|
| Chai Wan Public Cargo Working Area (PCWA) | 1.28 | 23 |
| Cha Kwo Ling PCWA | 0.00 | 0 |
| Kwun Tong PCWA | 1.25 | 4 |
| New Yau Ma Tei PCWA | 0.75 | 14 |
| Rambler Channel PCWA | 0.00 | 8 |
| Stonecutters Island PCWA | 0.57 | 13 |
| Tuen Mun PCWA | 0.00 | 14 |
| Western District PCWA | 0.00 | 1 |
| China Merchant Wharf | 0.00 | 0 |
| Yuen Fat Pier and Godown | 0.00 | 6 |
| River Trade Terminal | 0.00 | 12 |
Studies have been carried out on the rat-flea situation to assess the risk of plague transmissions. During the year, on-street fixed pitch stalls were selected for the study.
Rat-Flea Survey in On-street Fixed Pitch Stalls
| No. of on-street fixed pitch stall sites surveyed | Rat-flea Index | No. of rodents collected |
|---|---|---|
| 6 | 0.133 | 150 |
Remarks: 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.
Hong Kong is renowned for its vibrant international airport and to ensure 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 2004 demonstrated effective control of these vectors.