To enhance food safety regulatory functions and to meet the growing expectations for better food safety standards, the Centre for Food Safety (CFS) was established in May 2006.
The CFS has seven sections responsible for various 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 participates 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 Centre'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 2006
| Applications approved for import licence for frozen/chilled meat and poultry | 61,127 |
| Applications approved for import of game, meat and poultry | 2,619 |
| Applications approved for import of milk and milk products | 133 |
| Applications approved for import of frozen confection | 116 |
| Number of vehicles carrying vegetables inspected at the Man Kam To Food Control Office | 28,067 |
Part of the day-to-day task of ensuring food safety involves close contact with consulates, food authorities on the Mainland and overseas, importers, the Customs and Excise Department and other relevant organisations.
Food Surveillance and Handling Food Complaints
Continuous monitoring, testing and law 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, 64,915 samples of food were taken for testing, representing nine samples for every 1,000 people in Hong Kong.
Food samples undergo microbiological examination, chemical analysis and radioactivity tests, allowing for 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 and fruits. Testing parameters include Methamidophos, Isocarbophos, N-Methyl Carbamates, Pyrethroids, and other Organophosphorous pesticides.
- Analysis of veterinary drug residues in raw milk, imported freshwater animals and chilled pork. Testing parameters include Aminoglycosides, ß-lactams, Clenbuterol, Macrolides, Malachite Green, 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 serves an additional purpose. The information is reviewed and analysed regularly to help topical studies, assess the risk of specific foods and planning of food safety strategies.
In 2006, a total of 5,861 food complaints were handled.
Statistics on the Food Surveillance Programme in 2006
(A) Testing of food samples
| Testing | Number | Percentage |
|---|---|---|
| Chemical (including toxicity) | ||
| Test reports received | 41,505 | - |
| Satisfactory | 41,349 | 99.62% |
| Microbiological | ||
| Test reports received | 21,513 | - |
| Satisfactory | 21 472 | 99.81% |
| Radioactivity | ||
| Test reports received | 1,857 | - |
| Satisfactory | 1,857 | 100% |
(B) Enforcement statistics concerning food labelling
| Food labels inspected | 55,346 |
| Written warnings issued | 51 |
| Prosecutions taken out | 64 |
Management of Food Incidents
The CFS monitors food incidents, both local and overseas. Since the establishment of CFS in 2006, some 250 food incidents were identified. Taking into account the risk involved and the local situation, the Risk Management Section (RMS) assesses the local impact, suggests appropriate actions to be taken, and assists in the coordination of immediate response to food incidents. CFS response to incidents may include checking with exporting countries and/or relevant traders (importers/retailers) for more information; collecting samples for testing; and in case of significant impact, issuing press release and food alert and disseminating information through the electronic system to provide the public and trade with relevant information; alerting Department of Health and health professionals; suspending import if applicable; and, if required, coordinating food recalls.
Staffed by doctors and nurses, the Food Incidents Response and Management Unit of RMS, in collaboration with the Centre for Health Protection, investigates outbreaks of food poisoning and food borne infectious diseases in food premises, identifies the contributing factors in the outbreaks and assists in tracing source of suspected food. The Unit also educates the food handlers about food, personal and environmental hygiene at the food premises concerned. Some 950 investigations were carried out by the Unit on food-borne diseases in 2006. 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. Seventy-four registered farms and 19 processing plants in the Mainland were inspected in 2006. These included chicken farms, duck farms, geese farms, pig farms and aquaculture farms. Most of them were located in Guangdong province.
During the year, 8.7 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 2006
| Type of poultry | No. of poultry imported | No. of blood samples tested | No. of animal health certificates verified |
|---|---|---|---|
| Chickens and other poultry | 8,702,827 | 87,452 | 4,688 |
No. of local and imported food animals inspected in 2006
| Type of animal | No. of animals inspected | No. of animal health certificates verified |
|---|---|---|
| Pigs | 1,971,851 | 38,818 (health certificates) + 27,813 (admission forms for local pigs) |
| Cattle | 46,302 | 4,346 (health certificates) + 1 (admission form for local cattle) |
| Goats | 11,619 | 106 |
| No. of urine samples collected in food animals for testing of prohibited and restricted chemicals | 66,262 |
The Public Health (Animals and Birds) (Chemical Residues) Regulation (Cap. 139) prohibits the use of certain chemicals, including clenbuterol, and restricts the residue levels of a number of chemicals in food animals. During the year, 6,314 tissues and blood samples were collected from food animals for testing of veterinary chemicals and disease surveillance. 204 pigs, tested positive for prohibited chemicals, were destroyed at the slaughterhouses.
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. 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 Centre every import of live coral fish within 48 hours of arrival.
For the export of food products of animal origin, 51 veterinary health certificates were issued. The value of these products, such as chicken powder and mooncakes, totalled $48.5 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 Centre conducts projects of public health significance, which involve a comprehensive review and analysis of food-related hazards based on scientific evidence, food production practices and results of laboratory analysis.
During 2006, the Centre embarked on risk assessment projects on "Dietary Exposure to Antimony of Secondary School Students", "The Microbiological Quality of Pre-cut Fruits for Sale or Serving in Retail Outlets", "Natural Toxins in Food Plants", "Nutrient Values of Fruits and Vegetables", "Dietary Exposure to Chloropropanols of Secondary School Students", "Acrylamide in Fried and Baked Foods" and "Undeclared Peanut and Tree Nut Allergens in Prepackaged Foods". The last two projects were conducted in collaboration with the Consumer Council. The Centre's Food Research Laboratory provided laboratory and research support on the above-mentioned projects, except the microbiological project.
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 covered in 2006 and were posted on the Centre's Website. Examples included "Formaldehyde in Food", "Avian Influenza Viruses and Food Safety", "Cadmium in Food", "Avian Influenza and Chilled Poultry", "Microbiological Food Safety of Raw Vegetables Intended for Human Consumption", "Pesticide Residues in Food", "Allergenicity Assessment of Genetically Modified Food", "Safety and Application of Food Additives", "DDT in Food" and "Sudan Dyes in Food".
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.
The Centre 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. The Centre continued its work preparing for a labelling scheme on nutrition information and held a technical meeting with the trade to discuss related issues in 2006. Furthermore, an inter-laboratory exercise for ensuring the competence of commercial laboratories on nutrient testing was conducted in the year. The Administration aims to introduce legislative amendments to the Legislative Council in 2007.
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 Centre's risk assessment capacity. Commencing since March 2005, the survey is expected to complete 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 Organization (FAO) of the United Nations/World Health Organization (WHO) Expert Committee on Food Additives, and the Joint FAO/WHO Meeting on Pesticide Residues, serve as the primary references.
In view of the advancement in food science and technology in past decades, the Centre considers there is a need to update the Preservatives in Food Regulations. The proposal was discussed and supported by members of the Expert Committee on Food Safety at its meeting in October 2006. The Centre started public consultation on amending the Regulations in December 2006 and the consultation would end in February 2007.
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. In this regard, the Centre 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 Centre encourages the trade to adopt a voluntary labelling system for GM food. The "Guidelines for Voluntary Labelling of GM Food" was issued in July 2006. It aims to provide reference for the trade to make truthful and informative GM claims in a consumer-friendly manner. At the same time, the Centre will keep in view further recommendations on GM food safety assessment and labelling promulgated by the Codex.
The Centre has also 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, newsletter and its website, to enhance the public's understanding of the issue.
Risk Communication
Risk Communication Section facilitates and enables interactive exchange and active participation of relevant stakeholders on two fronts - uphold of food safety and control of disease vectors.
On food safety, the Section fully recognises the importance of tripartite cooperation, namely, the government, the food trade and the public at large and organises interactive programmes to enable the food trade and public to assume their own roles in maintaining food safety.
The Food Safety Day 2006 campaign was launched to help promote this philosophy. The Centre staged a variety show in a shopping centre on 26 August. Representatives of the Government, the food trade and the public participated in the show and games to signify the tripartite collaboration. As part of the Food Safety Campaign, a series of food hygiene seminars, targeting food business personnel, teachers and the public, and roving exhibitions on food safety were held.
To strengthen collaboration with food trade, a new initiative, namely Trade Consultation Forum is organised regularly. The first Forum was held on 28 July.
To facilitate better communication with the public, Consumer Liaison Group was formed and meeting is to be held regularly. The inauguration ceremony was held on 19 August.
Both the Forum and the Group serve as a platform for the food trade and the public to exchange views, information and knowledge about food safety issues with the Government.
A new publication, titled "Food Safety Focus" was launched to serve as a channel to disseminate food safety messages to the public and the trade. It is an electronic monthly newsletter posted on the CFS website. The first publication was released in August.
In the control of disease vectors, the Anti-mosquito Campaign was held in collaboration with other departments to increase public awareness on the potential risk of dengue fever and Japanese encephalitis (JE); to encourage community participation and strengthen partnership among government departments concerned; and to eliminate mosquito-breeding sites. On the other hand, the Anti-rodent Campaign also continued in the year. Talks, exhibitions and other educational materials supported both campaigns.
The Risk Communication Section handles enquiries from the media and the public on food safety and pest control issues. It also publicises the results of food surveillance and risk assessment studies and relevant health advice; updates the "Seasonal Food Safety Tips" and the "Food Safety Files" on the Centre's website; and issues the quarterly publication - the "Food Safety Bulletin" with separate versions for consumers and the trade. Other resource materials include pamphlets, posters and videos on various food and public health topics.
Summary of Risk Communication Activities in 2006
| Item | 2003 | 2004 | 2005 | 2006 |
|---|---|---|---|---|
| No. of educational / publicity programmes organised | 13 | 13 | 13 | 13 |
| No. of resource materials (printed material, audio-visual materials) produced | 68 | 46 | 48 | 46 |
| Total attendance at public education / communication activities | 159,968 | 151,285 | 154,556 | 175,278 |
| No. of public enquiries handled | 1,050 | 1,587 | 1,939 | 2,466 |
| No. of Hazard Analysis and Critical Control Point (HACCP) seminars /workshops | 27 | 29 | 29 | 31 |
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). Promotional 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 pest control matters affecting public health. 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 Department of Health; 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, and this is followed by appropriate vector control measures.
Control programmes
Vector-borne diseases, including malaria, dengue fever, JE, plague, scrub typhus, urban typhus, spotted fever and hantaan disease, continued to pose a threat to Hong Kong.
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. Thanks to concerted efforts by the Department and many others, no local transmission of dengue fever and JE 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 2006, the average ovitrap index recorded was 5.7%. The highest Monthly Average Ovitrap Index (MOI) recorded was 13.7% and the highest port MOI was 3.1%. The indices were recorded in October and July respectively. These revealed the mosquito problem was under control. Unfortunately, some of the ovitraps were found to have been tampered with in some months of the year, making some of the readings unreliable. Improvement measures were adopted aiming to prevent the tampering of ovitrap in the future.
Mosquito control work
| No. of inspections | No. of mosquito breeding places found | No. of warning letters issued | No. of summonses taken out |
|---|---|---|---|
| 713,597 | 63,573 | 463 | 110 |
A long-standing control programme against malaria-transmitting mosquitoes, covering some 600 streams, returned favourable results again in 2006. 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 rural areas such as hiking trails and villages, frequented by visitors through the Anti-rodent Campaign. A 12-month pilot study on maintaining rat-free villages was also conducted during the campaign. The campaign was promoted through a number of channels including theme talks and exhibitions. Some 1,830 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 5,705 complaints with 39 written warnings issued, and 29,315 (1,993 trapped and 27,322 poisoned) dead rodents collected. More than 8,500 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 hygiene 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 | 3,595 | 4,246 | 4 | 80 | 75,484 | 24,756 | 444 (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 2.9%, 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 go-downs, and the infestations of dengue and malaria transmissible mosquitoes throughout Hong Kong. Over 600 rodent surveys were conducted at wharves and go-downs in 2006.
Waterfront Plague Surveillance
| Cargo working areas | Rat-flea Index* | No. of rodents collected |
|---|---|---|
| Chai Wan Public Cargo Working Area (PCWA) | 0.00 | 2 |
| Cha Kwo Ling PCWA | 0.00 | 5 |
| Kwun Tong PCWA | 0.07 | 14 |
| New Yau Ma Tei PCWA | 0.07 | 18 |
| Rambler Channel PCWA | 0.00 | 11 |
| Stonecutters Island PCWA | 0.00 | 3 |
| Tuen Mun PCWA | 0.00 | 6 |
| Western District PCWA | 0.00 | 1 |
| China Merchant Wharf | 0.00 | 2 |
| Yuen Fat Pier and Godown | 1.53 | 15 |
| River Trade Terminal | 0.00 | 2 |
* 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 multi-purpose buildings and factory buildings
Studies have been carried out on the rat-flea situation to assess the risk of plague transmission. Multi-purpose buildings and factory buildings were selected for the study in 2006.
| No. of multi-purpose buildings surveyed | Rat-flea Index | No. of rodents collected |
|---|---|---|
| 170 | 0.00 | 17 |
| No. of factory buildings surveyed | Rat-flea Index | No. of rodents collected |
|---|---|---|
| 63 | 0.45 | 24 |
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 2006 demonstrated effective control of these vectors.
Airport Disease Vectors Surveillance
Since 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 is in place to promote mutual understanding and cross-fertilisation of expertise. Information on disease vectors surveillance in port areas is also exchanged regularly.