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 2006.
The CFS has eight 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 participates in the investigation of food poisoning outbreaks at food premises and advises on food standards.
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 high-risk food, such as game, meat, poultry, milk and frozen confection.
Safety Control of Imported Food in 2007
| Applications approved for import licence for frozen/chilled meat and poultry | 69,698 |
| Applications approved for import of game, meat and poultry | 2,244 |
| Applications approved for import of milk and milk products | 140 |
| Applications approved for import of frozen confections | 125 |
| Number of vehicles carrying vegetables inspected at the Man Kam To Food Control Office | 28,588 |
Part of the day-to-day task of ensuring food safety involves close contact with consulates, Mainland and overseas food authorities, 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, 65,206 samples of food were taken for testing, representing nine samples for every
1,000 people in Hong Kong.
Food samples underwent microbiological examination, chemical analysis and radioactivity tests for an assessment of whether 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 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.
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 2007, a total of 6,360 food complaints were handled.
Statistics on the Food Surveillance Programme in 2007
(A) Testing of food samples
| Testing | Number | Percentage |
|---|---|---|
| Chemical (including toxicity) | ||
| Test conducted | 44,290 | - |
| Satisfactory | 44,025 | 99.40% |
| Microbiological | ||
| Test conducted | 18,808 | - |
| Satisfactory | 18,535 | 98.55% |
| Radioactivity | ||
| Test conducted | 1,740 | - |
| Satisfactory | 1,740 | 100% |
(B) Enforcement of food labelling
| Food labels inspected | 55,338 |
| Written warnings issued | 102 |
| Prosecutions taken out | 76 |
Management of Food Incidents
The CFS monitors food incidents, both local and overseas. Some 820 food incidents were identified in 2007. Taking into account the risks 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 importers or 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; and 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. Some 570 investigations were carried out by the unit into food-borne diseases in 2007. 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.
Implementing the concept of "from farm to table", veterinary staff members visit registered livestock farms exporting to Hong Kong to ensure that good husbandry practices are in place. Sixty-one registered farms and 21 processing plants in the Mainland were inspected in 2007. These included chicken farms, duck farms, pigeon farms, geese farms, pig farms, cattle farms, hairy crab farms and aquaculture farms. Most of them were located in Guangdong Province.
During the year, 9.1 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 2007
| Type of poultry | No. of poultry imported | No. of blood samples tested | No. of animal health certificates verified |
|---|---|---|---|
| Chickens and other poultry | 9,148,600 | 94,192 | 5,048 |
No. of local and imported food animals inspected in 2007
| Type of animal | No. of animals inspected | No. of animal health certificates verified |
|---|---|---|
| Pigs | 1,765,728 | >36,753 health certificates and 22,010 admission forms for local pigs |
| Cattle | 41,236 | 3,825 health certificates and 7 admission forms for local cattle |
| Goats | 12,716 | 116 health certificates and 1 admission form for local goats |
| No. of urine samples collected in food animals for testing of prohibited and restricted chemicals | 53,767 |
|---|
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, 6,745 tissues and blood samples were collected from food animals for testing of veterinary chemicals and disease surveillance. Twenty-eight 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 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 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 Centre every import of live coral fish within 48 hours of arrival.
For the export of food products of animal origin, 61 veterinary health certificates were issued. The value of these products, such as chicken powder, ice-cream and mooncakes, totalled $45.4 million. They were exported to Australia, Canada, the European Union, the Mainland, Macau, New Zealand, Singapore and the US.
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 basing 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 study are part of the Centre's risk assessment work. In addition, food incidents, reports and issues, both inside and outside Hong Kong, are monitored and assessed on a daily basis. It allows the Centre 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 2007, the Centre embarked on several risk assessment projects, namely: "Nutrient Values of Fruits and Vegetables", "Dietary Exposure of Secondary School Students to Chloropropanols", "Dietary Exposure of Secondary School Students to Benzoic Acid from Prepackaged Non-alcoholic Beverages", "Aluminium in Food", "Levels of Mercury and Methylmercury in Different Fish Species", "Microbiological Quality of Poached Chicken", "Nutrient Contents of Common Non-prepackaged Beverages in Hong Kong", "Trans Fats in Locally Available Food" (Part One) and (Part Two).
Information on food risk is provided to the public through a series of "Risk-in-brief" (RIB) papers, which are posted on the Centre's website. In 2007, new issues included "Norovirus Gastroenteritis", "Oily Diarrhoea (Keriorrhoea) after Fish Consumption", "Paralytic Shellfish Poisoning Toxins" and "Red 2G in Food". RIB of "Steviol Glycosides in Food" 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 survey was ongoing in 2007. Results of the survey can enhance the capacity of risk assessment work and facilitate the conduct of the Total Diet Studies.
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 CFS to proactively assess whether specific chemicals would pose a risk to the health of the public. In addition, it provides a scientific basis for formulating food safety strategies, undertaking surveillance and monitoring of food and food products, establishment of regulatory standards for food and identification of 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 at risk and facilitates the formulation of action plans tailor-made for the specific groups. To formulate an implementation plan for the exercise, a Task Force on Total Diet Study consisting of members from various government departments was set up by CFS with its first meeting held in February 2007.
Nutrition Labelling
In order to promote healthy food choice among consumers, application of sound nutritional principles in food production and control deceptive nutrition claims, the Government proposed a labelling scheme on nutrition information. In 2007, the Centre conducted technical meetings with various sectors of the trade and laboratory service providers, and consultation with other stakeholders to discuss the Government's latest proposal on the scheme. The relevant Amendment Regulation is to be submitted to the Legislative Council in 2008.
Nutrient Information Inquiry System
The Nutrient Information Inquiry System (NIIS) is a web-based searchable database containing the nutrient information of commonly consumed food items. In May, the NIIS was enhanced to increase the number of food items to over 4,300. The data are based mainly on the analysis results of locally available foods conducted by the Food Research Laboratory as well as data from overseas institutions or authorities. A new initiative - Food Nutrient Calculator under the NIIS was launched in June to promote public awareness of and ability to 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 nutrient tables. The NIIS won the Hong Kong ICT Awards 2007: Best Public Service Application (Most Favoured) Silver Award.
Food Standards
Setting food standards is an integral part of risk management in food safety. In setting new local food standards, 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.
In view of the advancement in food science and technology in the past decades, the Centre considered there was 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 consulted the public on the proposed amendments between December 2006 and February 2007. Four technical meetings were held to brief the trade. The Amendment Regulation is to be submitted to the Legislative Council in 2008.
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. CFS started a public consultation on the proposed regulatory framework in November. Two public consultation forums and one trade consultation forum were held in November and December. The public consultation period will end in January 2008.
In 2007, CFS started the standard setting work on the veterinary drug residues in food. A Working Group comprising representatives from different government departments and experts from the Expert Committee on Food Safety was formed to formulate the legislative framework. The Veterinary Public Health Workshop conducted in October focused on veterinary drug use and regulation. Public consultation is planned to be carried out in 2008.
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" (the Guidelines) was issued in 2006. To assess the trade compliance with the Guidelines and measure the effectiveness of the voluntary labelling approach, an evaluation commenced in July 2007 for completion by early 2008.
CFS collaborates with the Government Laboratory through a capacity building programme for GM food testing. In 2007, one quantitative and one qualitative GM food testing method had been developed by the Government Laboratory. Besides regulation, CFS also focuses its work on public education on GM food. Relevant information is conveyed to the public through different channels including train-the-trainer workshops and the GM Food Newsletter.
Risk Communication
Effective communication with stakeholders is of critical 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 own roles in maintaining food safety.
"Collective Responsibility in Ensuring Food Safety" was the theme of the Food Safety Day 2007 held in August. The Centre staged a variety show in a shopping centre, with the participation of food trade representatives and the public. Through the event, messages relating to the roles and collective responsibility of the three parties in upholding food safety were disseminated. Other activities of the Food Hygiene Campaign between June and September included food hygiene seminars targeting at food business personnel, teachers and the public, as well as roving exhibitions.
The Food Safety Seminar for Trade was held in September to update participants with the latest food regulatory requirements in Hong Kong and to introduce new food safety initiatives and programmes. The Centre also held Trade Consultation Forums regularly to enable the exchange of current and important food safety information and views between the food trade and the Government. A Consumer Liaison Group was formed in August 2006 to collect suggestions and comments from the public on various food safety issues. Focus group meetings were held regularly on different food safety topics to facilitate the Centre's understanding of public knowledge, beliefs and risk perception in order 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. Food alerts are issued on the CFS website and via electronic means when food incidents of concern have been 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 CFS. It also provides professional and easy-to-understand information on various food hazards and their public health risks. Quarterly printed publications, namely the "Food Safety Bulletin" and the "Food Safety Express", target the general public and the trade respectively. Seasonal food safety tips are regularly updated and made available on the CFS website.
The section also 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 available on the CFS website.
Summary of Risk Communication Activities in 2007
| Item | 2004 | 2005 | 2006 | 2007 |
|---|---|---|---|---|
| No. of educational / publicity programmes organised | 13 | 13 | 13 | 13 |
| No. of resource materials (printed material, audio-visual materials) produced | 46 | 48 | 46 | 60 |
| Total attendance at public education / communication activities | 151,285 | 154,556 | 175,278 | 186,046 |
| No. of public enquiries handled | 1,587 | 1,939 | 2,466 | 4,868 |
| No. of Hazard Analysis and Critical Control Point (HACCP) seminars /workshops | 29 | 29 | 31 | 33 |
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 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 June to September 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
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, and this is followed by appropriate vector control measures. There was no report of local transmission of dengue fever and JE during the year.
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 2007, the average ovitrap index recorded in the community was 7.8%. The highest Monthly Average Ovitrap Index (MOI) recorded in the community was 23.1% (in July) and the highest port MOI was 3.2% (in June). These revealed 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 2007, revealing no evidence of local transmission of malaria.
During the year, the Department conducted 672,024 inspections with 68,605 mosquito breeding places found, 293 warning letters issued, and 102 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 2007. Anti-mosquito measures had been strengthened with educational and publicity work, and there was a continued emphasis on eliminating breeding places.
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 and 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 the territory was 4.8%, down from 15.9% in 2000. This indicates that rodent problem is under control. Over 570 rodent surveys were conducted at wharves and go-downs to monitor rodent numbers in 2007.
The rat-flea indices of waterfront cargo working areas under surveys in 2007 were zero except that of the Yuen Fat Pier and Godown (2.0). ( 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.)
Moreover, studies were carried out in six rural villages and five typhoon shelters on the rat-flea situation to assess the risk of plague transmission in 2007. The respective rat-flea indices were 0.1 and 1.2.
Inspections and disinfestations are also carried out regularly to contain rodent problems. During the year, the Department handled 6,809 reports of rodent problems with 59 written warnings issued, and collected 26,601 dead rodents (1,856 trapped and 24,745 poisoned). More than 7,300 rat holes were destroyed.
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.
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 2007, 633 mosquito surveys were conducted, 34 advisory letters were issued, and the relevant rat-flea index was zero.
Cross-boundary Co-operation
As infectious diseases know no physical boundaries, closer ties have been established among Guangdong Province, Macau 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.
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 2007, 90,826 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.