To enhance food safety regulatory functions and meet the growing expectations for better food safety standards, the Centre for Food Safety (CFS) was established in 2006.
The CFS has nine 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 investigates food poisoning outbreaks on food premises and advises on food standards.
Safety Control of Imported Food
As most food supplies originate from outside Hong Kong, import control is an important part of the CFS'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 confections.
Safety Control of Imported Food in 2008
| Applications approved for import licence for frozen/chilled meat and poultry | 89,094 |
| Applications approved for import of game, meat and poultry | 2,294 |
| Applications approved for import of milk and milk products | 156 |
| Applications approved for import of frozen confections | 84 |
| Number of vehicles carrying vegetables inspected by the Man Kam To Food Control Office | 28,467 |
Part of the day-to-day task of ensuring food safety involves close liaison 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 keys to ensuring the safety of Hong Kong's food supplies. Food samples are tested at every stage in the supply process: from import and manufacture to wholesale and retail.
During the year, 66,726 samples of food were taken for testing, which is about nine samples for every 1,000 people in Hong Kong.
Food samples undergo microbiological examinations, chemical analyses and radioactivity tests to assess their conformity 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 are divided 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.
In connection with the melamine incident in the Mainland revealed in September, the laboratory has extended its service to testing melamine in samples of raw milk and pasteurised milk imported from the Mainland.
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 formulation of food safety strategies.
In 2008, a total of 5,086 food complaints were handled.
Statistics on the Food Surveillance Programme in 2008
(A) Testing of food samples
| Testing | Number | Percentage |
|---|---|---|
| Chemical (including toxicity) | ||
| Test conducted | 47,399 | - |
| Satisfactory | 47,199 | 99.60% |
| Microbiological | ||
| Test conducted | 17,120 | - |
| Satisfactory | 17,087 | 99.8% |
| Radioactivity | ||
| Test conducted | 1,893 | - |
| Satisfactory | 1,893 | 100% |
(B) Enforcement of food labelling
| Food labels inspected | 54,134 |
| Written warnings issued | 101 |
| Prosecutions taken out | 18 |
Management of Food Incidents
The CFS monitors food incidents, both local and overseas. Some 700 food incidents were identified in 2008. 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. The CFS's response to incidents may include checking with exporting countries and/or relevant importers or retailers for further information and collecting samples for testing; and in case of significant impact, issuing a press release and a 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 on food premises, identifies the contributing factors and assists in tracing sources 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 2008. Vibrio parahaemolyticus, Staphylococcus aureus and Salmonella were the most common causative agents in food poisoning outbreaks related to food premises. Common contributing factors identified during investigations included cross contamination of ready-to-eat food by raw food, prolonged storage or inappropriate storage temperatures, inadequate cooking, raw food consumed or contaminated raw food, and contamination by food handlers.
The CFS worked closely with the food caterers and organisers of the 2008 Olympic and Paralympic Equestrian Events held in Hong Kong to ensure food safety throughout the events. A dedicated "Food Safety Advisory Team" was established to ensure that the services provided by the food caterers and hotels met the strictest international safety standards. Furthermore, risk-based enforcement inspections to licensed premises at events venues and tourist areas were strengthened. A targeted food surveillance programme was conducted and some 1,500 food samples were collected for microbiological and chemical analysis and all samples results were satisfactory. Twenty-five food safety training workshops for catering providers/food handlers and volunteers were held for about 1,600 participants. With the concerted efforts of all, the target of "zero incident in food poisoning" was achieved.
The Mainland authorities revealed in September that some babies had developed renal stones as a result of consuming milk powder tainted with melamine, a harmful chemical. The revelation caused grave concern in Hong Kong, and the local authorities quickly set up an expert group to monitor the incident. The Harmful Substances in Food (Amendment) Regulation 2008 was gazetted and came into force on 23 September to set the legal limits of melamine in foods. Any person who sells food containing melamine of concentration greater than the legal limits commits an offence. A systematic and extensive food surveillance programme on milk and other foodstuff was conducted by the CFS. About 5,000 food samples were tested between mid-September and December of which 40, or less than one per cent, were found to contain melamine exceeding the legal limits and had been removed from shop shelves. To communicate the risk with the public, the CFS created a dedicated webpage on melamine with test results of food products uploaded on a daily basis. A telephone enquiry hotline was also set up. During the incident, the CFS handled over 7,700 telephone enquiries and over 1,000 written ones.
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 farms exporting to Hong Kong to ensure that good husbandry practices are in place. Seventy-two registered farms and eight processing plants in the Mainland were inspected in 2008. These included farms for chickens, ducks, pigeons, geese, pigs, hairy crabs and aquaculture.
During the year, 6.3 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.
Number of imported food poultry inspected and blood samples tested in 2008
| Type of poultry | No. of poultry imported | No. of blood samples tested | No. of animal health certificates verified |
|---|---|---|---|
| Chickens and other poultry | 6,384,460 | 68,894 | 3,666 |
Number of local and imported food animals inspected in 2008
| Type of animal | No. of animals inspected | No. of animal health certificates verified |
|---|---|---|
| Pigs | 1,544,370 | 35,863 health certificates and 9,501 admission forms for local pigs |
| Cattle | 28,619 | 2,558 health certificates and 2 admission forms for local cattle |
| Goats | 9,939 | 91 health certificates |
| No. of urine samples collected in food animals for testing of prohibited and restricted chemicals | 28,220 |
|---|
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, 5,550 tissues and blood samples were collected from food animals for testing of veterinary chemicals and disease surveillance. Seven 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 since December 2004. 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 CFS every import of live coral fish within 48 hours of arrival.
For the export of food products of animal origin, 94 veterinary health certificates were issued for products such as chicken powder, ice-cream, bird's nest, fishery products and mooncakes. The value of them totalled $63.8 million. They were exported to Australia, Canada, the European Union, Korea, the Mainland, Macau, Morocco, 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 based 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 studies are part of the CFS'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. These allow the CFS 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 2008, the CFS embarked on several risk assessment projects, namely: "Polybrominated diphenyl ethers in foods of animal origin", "Ethyl carbamate in local fermented food", "The food safety of instant cup noodle containers", "Trans fats in local food (part 3)", "Safety of irradiated food", "Microbiological quality of rice and noodles in Hong Kong" and "Sodium content of savoury snacks in Hong Kong".
Information on food risk is provided to the public through a series of "Risk-in-brief" (RIB) papers, which are posted on the CFS website. In 2008, new issues of RIB included "Melamine in Food", "Nitrate in Food" and "The Safety of Energy Drink". The RIB on "Enterobacter sakazakii in Powdered Infant Formula" was 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 data collected from the survey was being analysed. Results of the survey can enhance the capacity of risk assessment work and facilitate the conduct of the Total Diet Study.
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 the CFS to proactively assess whether specific chemicals would pose a risk to public health. In addition, it provides a scientific basis for formulating food safety strategies, undertaking surveillance and monitoring of food and food products, establishing regulatory standards for food and identifying 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 vulnerable and facilitates the formulation of action plans tailor-made for these groups. A Task Force on Total Diet Study consisting of members from various government departments has been formulating the details of the first TDS in Hong Kong and the field work was planned to commence in 2009. A four-day workshop, in collaboration with the World Health Organization (WHO), was held in December to equip participants with the knowledge and skills required for conducting TDS. About 80 representatives from the Asia Pacific and South East Asia regions attended the workshop.
Nutrition Labelling
To assist consumers to make healthier food choices, encourage the trade to adopt sound nutritional principles in food production and regulate misleading or deceptive nutrition claims, the Government proposed a Nutrition Labelling Scheme. The Food and Drugs (Composition and Labelling)(Amendment : Requirements for Nutrition Labelling and Nutrition Claim) Regulation 2008 (Amendment Regulation) was enacted by the Legislative Council on 28 May 2008 and will come into effect on 1 July 2010. In order to assist the trade and laboratory service producers to understand and comply with the scheme, the CFS conducted technical meetings with them and consultation with other stakeholders. The CFS also issued two sets of technical guidance notes to the trade, and conducted eight trade workshops between July and December to give an overview of the scheme. Three briefing sessions were also organised between August and December for traders in the Mainland. A Task Force on Nutrition Labelling Education has been formed to oversee the publicity and education campaign, comprising representatives from professional organisations, the trade, consumer groups, academia and government departments.
Nutrient Information Inquiry System
The Nutrient Information Inquiry System (NIIS) is a web-based searchable database containing the nutrient information of over 4,300 commonly consumed food items. Since June 2007, a Food Nutrient Calculator was incorporated 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 composition tables. The NIIS is currently being updated with the latest nutrient profiles from different overseas databases and local studies, and being enhanced to include more nutrients that are of public concerns.
Food Standards
Setting food standards is an integral part of risk management in food safety. In setting new local food standards, the 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 2008, the Legislative Council passed three amendment regulations related to food preservatives, antioxidants, harmful substances and colouring matters. The amendment regulation on the control of the use of preservatives and antioxidants in food came into operation on 1 July. There is a transitional period of two years to help the trade prepare for the changes. Under an amendment enacted on 23 September, melamine is one of the harmful substances specifically controlled by the Harmful Substances in Food Regulations. Regarding colouring matters in food, following an amendment which came into effect on 1 December, Red 2G was taken out from the list of permitted colouring matters in the Colouring Matter in Food Regulations.
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. The CFS conducted a public consultation on the proposed regulatory framework from November 2007 to January 2008. It is now refining the proposed regulatory framework taking into account comments and views collected in the consultation.
In 2007, the CFS started the standard setting work on the veterinary drug residues in food. A Working Group comprising representatives from various government departments and members of the Expert Committee on Food Safety was formed to formulate the legislative framework. The CFS plans to finalise the proposed regulatory framework and consult the public in 2009/10.
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. 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.
Since July 2006, the CFS has issued "Guidelines for Voluntary Labelling of GM Food" to the trade, encouraging the trade to adopt a voluntary labelling system for GM food. In 2008, two quantitative GM food testing methods have been developed in the capacity building programme in collaboration with the Government Laboratory. The CFS also focuses on public education on GM food. Relevant information is conveyed to the public through different channels including training workshops and the GM Food Newsletter.
Risk Communication
Effective communication with stakeholders is of pivotal 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 part in maintaining food safety.
A large scale campaign promoting the Five Keys to Food Safety, namely choose, clean, separate, cook and safe temperature, was launched in mid-2008. Promotional activities included poster advertisements in public transport system, announcements in the public interests, short TV series, participation in Food Expo 2008, a road show in shopping mall, distribution of information booklets and advertisements in large wall banner. Members of the food trade also joined hands with the Government to promote the messages to their staff, members and customers by signing a "Food Safety Charter".
Trade consultation forums were held regularly to exchange latest information, views and developments on food safety between the food trade and the Government. A Consumer Liaison Group was formed 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 CFS's understanding of public knowledge, belief and risk perception 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. The "Rapid Alert System" was launched in February to give prompt email/fax messages to the food trade explaining food incident, providing advice and enquiry phone numbers. Food alerts are issued on the CFS website and via electronic means when food incidents of concern are 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 the CFS. It also provides professional and easy-to-understand information on various food hazards and their public health risks. Quarterly printed publications, "Food Safety Bulletin" and "Food Safety Express", target the general public and the trade respectively. Seasonal food safety tips are regularly updated and posted on the CFS website.
The section 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 uploaded on to the CFS website.
Summary of Risk Communication Activities in 2008
| Item | 2005 | 2006 | 2007 | 2008 |
|---|---|---|---|---|
| No. of educational / publicity programmes organised | 13 | 13 | 13 | 15 |
| No. of resource materials (printed material, audio-visual materials) produced | 48 | 46 | 60 | 63 |
| Total attendance at public education / communication activities | 154,556 | 175,278 | 186,046 | 180,000 |
| No. of public enquiries handled | 1,939 | 2,466 | 4,868 | 14,230 |
| No. of Hazard Analysis and Critical Control Point (HACCP) seminars /workshops | 29 | 31 | 33 | 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, caterers for elderly homes and child-care centres. Workshops and seminars were organised for managerial and operational staff of the target groups.
Members of the public have also been included in the publicity exercise, as a better informed public is an added incentive for the trade to implement HACCP principles.
Food hygiene seminars were held from August 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 the 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, 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 2008, the average ovitrap index recorded in the community was 6.1%. The highest Monthly Average Ovitrap Index (MOI) recorded in the community was 14.2% (in June) and the highest port MOI was 1.6% (in June). These reflected 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 2008, revealing no evidence of local transmission of malaria.
During the year, the Department conducted 673,424 inspections with 65,878 mosquito breeding places found, 242 warning letters issued, and 78 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 2008. Anti-mosquito measures were 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 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 2008 was 6.3% which indicated that rodent problem was under control.
Moreover, studies were carried out in three country parks and five reservoirs on the rat-flea situation to assess the risk of plague transmission in 2008. Both rat-flea indices were found to be zero. (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.)
Inspections and disinfestations are also carried out regularly to contain rodent problems. During the year, the Department handled 7,554 reports of rodent problems with 70 written warnings issued, and collected 29,338 dead rodents (3,898 trapped and 25,440 poisoned). More than 8,000 rat holes were eliminated.
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 2008, 768 mosquito surveys were conducted, 29 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 2008, 105,433 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.