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 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, such as game, meat, poultry, milk and frozen confection.
Safety Control of Imported Food in 2005
| Applications approved for import licence for frozen/chilled meat and poultry | 56,084 |
|---|---|
| Applications approved for import of game, meat and poultry | 3,355 |
| Applications approved for import of milk and milk products | 117 |
| Applications approved for import of frozen confection | 144 |
| Number of vehicles carrying vegetables inspected at the Man Kam To Food Control Office | 27,939 |
Part of the day-to-day task of ensuring food safety involves close contact with local consulates, food authorities on the Mainland and overseas, importers, the Customs and Excise Department and other relevant organisations.
Food Surveillance
Continuous monitoring, testing and enforcement are the keys 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, 62,419 samples of food were tested, representing nine samples for every 1,000 people in Hong Kong.
Food samples undergo microbiological examination, chemical analysis and radioactivity tests, allowing an assessment of 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:
- Analysis of pesticide residues in fresh vegetables. Testing parameters include Methamidophos, Isocarbophos, N-Methyl Carbamates, Pyrethroids, and other Organophosphorous pesticides.
- Analysis of veterinary drug residues in raw milk. Testing parameters include Aminoglycosides, ß-lactams, Macrolides, Polypeptides, Quinolones, Sulfonamides, Tetracyclines, Lincomycin, Spectinomycin, Trimethoprim, Chloramphenicol and synthetic hormones.
The Laboratory maintains its accreditation status on the tests for pesticide residues in vegetables and veterinary drug residues in milk under the Hong Kong Laboratory Accreditation Scheme.
The data collected through the Food Surveillance Programme serve an additional purpose. The information is reviewed and analysed regularly to help topical studies assess the risk of specific foods and long-term planning of food safety strategies.
Statistics on the Food Surveillance Programme in 2005
(A) Testing of food samples
| Testing | Number | Percentage |
|---|---|---|
| Chemical (including toxicity) | ||
| Test reports received | 40,143 | - |
| Satisfactory | 39,963 | 99.55% |
| Microbiological | ||
| Test reports received | 21,133 | - |
| Satisfactory | 21,107 | 99.88% |
| Radioactivity | ||
| Test reports received | 1,863 | - |
| Satisfactory | 1,863 | 100% |
(B) Enforcement statistics concerning food labelling
| Food labels inspected | 48,019 |
|---|---|
| Written warnings issued | 60 |
| Prosecutions taken out | 80 |
Management of Food Incidents
Staffed by doctors and nurses, the Food Incidents Response and Management Section provides support for investigation and control of food-borne diseases, such as food poisoning outbreaks involving food premises.
Some 870 investigations were carried out by the section on food-borne diseases in 2005. 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 included cross contamination of ready-to-eat food by raw food; inadequate cooking; prolonged storage or inappropriate storage temperatures; raw food consumed or contaminated raw food; and contamination by food handlers.
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, 12 million live chickens 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 2005
| Type of poultry | No. of poultry imported | No. of blood samples tested | No. of animal health certificates verified |
|---|---|---|---|
| Chickens and other poultry | 12,295,056 | 113,413 | 6,079 |
No. of local and imported food animals inspected in 2005
| Type of animal | No. of animals inspected | No. of animal health certificates verified |
|---|---|---|
| Pigs | 2,050,876 | 39,297 (health certificates) + 27,434 (admission forms for local pigs) |
| Cattle | 48,195 | 4,472 |
| Goats | 7,371 | 67 |
| No. of urine samples collected in food animals for testing of prohibited and restricted chemicals | 66,645 |
|---|
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. Some 318 pigs, tested positive for prohibited chemicals, were destroyed at the slaughterhouses in 2005. 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, 6,143 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 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 2004. Under the 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, 72 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 US, 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 steps - hazard identification, hazard characterisation, exposure assessment and risk characterisation.
Studies and Projects
As part of its risk assessment work, the 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 2005, the Department embarked on risk assessment projects on "Dietary Exposure to Dichlorodiphenytrichloroethane (DDT) of Secondary School Students", "The Microbiological Quality of Edible Ice from Ice Manufacturing Plants and Retail Businesses in Hong Kong", "Ochratoxin A in Food", "Nutrient Values of Local Indigenous Congee, Rice and Noodle Dishes", "Disposable Plastic Containers for Take-away Meals" and "Histamine in Canned Fish and Tuna Sandwiches". The last two projects were conducted in collaboration with the Consumer Council. The Department's Food Research Laboratory provided laboratory and research support for all these projects, with the exception of the microbiological study.
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 2005 and were posted on the Department's website. They included "Hijiki and Arsenic", "Naturally Occurring Toxins in Vegetables and Fruits", "Acrylamide in Food", "Microwave Cooking and Food Safety", "Malachite Green in Foods", and "Avian Influenza Viruses and Food Safety".
Food safety incidents and reports, 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 126 incidents and reports were assessed in 2005.
The Department continues 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. Results of the consultation exercise and RIA study were reported to the Legislative Council Panel on Food Safety and Environmental Hygiene in April 2005. The Administration aims to introduce the legislative amendments to LegCo in 2006.
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. Started in March 2004, the survey is expected to be completed in late 2007.
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 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. It is a rapidly developing scientific endeavour and is relatively new to many people. The FEHD examines the science behind biotechnology and assesses the potential risks. 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. 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, the Department keeps in view any further recommendations on GM food safety assessment and labelling promulgated by the Codex.
The Department has also been delivering information on GM food in an understandable way through a multitude of channels including talks, train-the-trainer workshops, roving exhibitions, pamphlets, a newsletter and the FEHD website, to enhance the public's understanding of the issue.
Risk Communication
The Risk Communication Section facilitates the interactive exchange and active participation of relevant stakeholders on two fronts - upholding food safety and controlling disease vectors.
On food safety, the section fully recognises the importance of tripartite co-operation between the Government, the food trade and the public, and organises interactive programmes to enable the trade and the public to assume their own roles in maintaining food safety.
The Food Safety Day 2005 campaign, between June and October, was launched to help promote this philosophy. On July 24, the Department in conjunction with Radio Television Hong Kong, staged a variety show, during which representatives of the Government, the food trade and the public jointly signed a Food Safety Charter to signify the tripartite collaboration. As part of the campaign, a series of food hygiene seminars, targeting food business personnel, teachers and the public, and roving exhibitions on food safety were held.
In the control of disease vectors, the Anti-mosquito Campaign was held in collaboration with other departments to improve public awareness of the importance of controlling mosquito breeding. The ongoing Anti-rodent Campaign was helped during the year with an educational video - "Anti-rodent tips - advice for shopping centres". Both campaigns were supported by talks, exhibitions and other educational material.
The Risk Communication Section handles enquiries from the media and the public on food safety and pest control issues. It also publicises health advice and the results of food surveillance and risk assessment studies; the "Seasonal Food Safety Tips" and the "Food Safety Files" on the Department's website; and the quarterly departmental publication - the "Food Safety Bulletin" with separate versions for consumers and the trade. Other resource material includes pamphlets, posters and videos on various food and public health topics.
Summary of Risk Communication Activities in 2005
| Item | 2003 | 2004 | 2005 |
|---|---|---|---|
| No. of educational / publicity programmes organised | 13 | 13 | 13 |
| No. of resource materials (printed material, audio-visual material) produced | 68 | 46 | 48 |
| Total attendance at public education / communication activities | 159,968 | 151,285 | 154,556 |
| No. of public enquiries handled | 1,050 | 1,587 | 1,939 |
| No. of Hazard Analysis and Critical Control Point (HACCP) seminars /workshops | 27 | 29 | 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 (Hazard Analysis and Critical Control Point). Promotion programmes were devised for specific trade sectors, including school lunch-box and "poon choi" suppliers. Managerial and operational staff of the target groups were invited to attend the workshops and seminars.
Members of the public were also included in the publicity exercise to reach a wider audience. A better informed public is an added incentive for the trade to implement HACCP principles.
Food hygiene seminars were held from July to November to introduce the concept of food risk and to highlight the FSP as an important risk management measure for the trade and the public.
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 closely with the trade in upholding the professional standards of pest control practices by offering professional support and advice.
Management of vector-borne diseases
Working 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 2005 was the report of one local case of JE.
Anti-mosquito Campaign and dengue vector surveillance
Hong Kong was under the constant threat of dengue fever and JE. 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.
Mosquito breeding grounds in the community and the port areas were monitored continually. The ovitrap indices obtained from these locations were released to the parties concerned and the public to increase community participation in controlling the vector and heighten awareness of the mosquito problem. In 2005, the highest Monthly Average Ovitrap Index (MOI) recorded was 13.2% and the highest port MOI was 3.2%. Both indices were recorded in June. These revealed the mosquito problem was under control. In fact, the average ovitrap index of 3.8% recorded during the year was the lowest since the dengue fever vector surveillance programme was launched in 2000.
Mosquito control work
| No. of inspections | No. of mosquito breeding places found | No. of warning letters issued | No. of summonses taken out |
|---|---|---|---|
| 579,279 | 52,758 | 517 | 160 |
A long-standing control programme against malaria-transmitting mosquitoes, covering some 600 streams, returned favourable results again in 2005. There was no evidence of local transmission of malaria. In a bid to promote the effective use of resources and in line with government policy, some of the control work along streams has been contracted out since 2001.
Anti-rodent Campaign
In addition to routine rodent control measures, the Department engaged community participation in its efforts to control rodents in shopping centres and their 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 4,665 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 5,157 complaints with 39 written warnings issued, and 31,119 (2,059 trapped and 29,060 poisoned) dead rodents collected. More than 10,600 rat holes were destroyed.
Other control programmes
Other than 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.
Disinfestations of Arthropod Pests
| Fleas | Wasps | Mites | Biting midges | Cockroaches | Flies | Others | |
|---|---|---|---|---|---|---|---|
| No. of disinfestation operations using pesticides | 1,880 | 4,871 | 5 | 98 | 90,637 | 22,162 | 815 (ants, moths, ticks, bedbugs & miscellaneous) |
Risk assessment and surveillance
To understand rodent infestations and to take prompt action to prevent their proliferation, a rodent infestation survey has been conducted. The Rodent Infestation Rate, (the percentage of bait consumed by rodents, obtained from different places and at different times), is used to assess rodent problems at these places. The overall Rodent Infestation Rate obtained in the territory was 4.4%, down from 15.9% in 2000. This indicates the rodent problem is under control.
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 610 rodent surveys were conducted at wharves and godowns in 2005.
Waterfront Plague Surveillance
| Cargo working areas | Rat-flea Index* | No. of rodents collected |
|---|---|---|
| Chai Wan Public Cargo Working Area (PCWA) | 0.00 | 3 |
| Cha Kwo Ling PCWA | 0.00 | 5 |
| Kwun Tong PCWA | 0.00 | 15 |
| New Yau Ma Tei PCWA | 0.00 | 15 |
| Rambler Channel PCWA | 0.00 | 3 |
| Stonecutters Island PCWA | 0.17 | 18 |
| Tuen Mun PCWA | 0.43 | 42 |
| Western District PCWA | 4.00 | 7 |
| China Merchant Wharf | 0.50 | 2 |
| Yuen Fat Pier and Godown | 0.89 | 9 |
| River Trade Terminal | 0.00 | 12 |
* 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.
Rat-Flea Survey in shopping centres
Studies have been carried out on the rat-flea situation to assess the risk of plague transmission. Shopping centres were selected for the study in 2005.
| No. of shopping centres surveyed | Rat-flea Index | No. of rodents collected |
|---|---|---|
| 9 | 0.05 | 61 |
Airport Disease Vectors Surveillance
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 2005 demonstrated effective control of these vectors.
Airport Disease Vectors Surveillance
| Rat-flea Index | No. of rodents collected | No. of mosquito surveys* | No. of advisory letters issued |
|---|---|---|---|
| 0.00 | 30 | 508 | 108 |
* The mosquito surveys were conducted under the airport disease vectors surveillance programme.
Recognising infectious diseases often defy physical boundaries, closer ties have been established between Guangdong Province, Macau and Hong Kong in the fight against the 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 was inaugurated in 2005 to promote mutual understanding and cross-fertilisation of expertise. The regular exchange of information on disease vectors surveillance in port areas was launched in January 2005.