The Centre for Food Safety (CFS), established in 2006, is tasked to enhance food safety regulatory functions to raise public confidence in the level of food safety.
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 2010
| Applications approved for import licence for frozen/chilled meat and poultry | 100,621 |
| Applications approved for import of game, meat and poultry | 2,532 |
| Applications approved for import of milk and milk products | 214 |
| Applications approved for import of frozen confections | 176 |
| Number of vehicles carrying vegetables inspected by the Man Kam To Food Control Office | 28,783 |
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, about 64,500 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 radiation level 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 three categories:
- Analysis of pesticide residues in fresh vegetables and fruits. Testing parameters include isocarbophos, methamidophos and other organophosphorous pesticides, N-methyl carbamates and pyrethroids.
- Analysis of veterinary drug residues in raw milk. Testing parameters include aminoglycosides, ß-lactams, chloramphenicol, clenbuterol, lincomycin, macrolides, polypeptides, quinolones, spectinomycin, sulfonamides, synthetic hormones, tetracyclines and trimethoprim.
- Analysis of melamine in samples of raw milk and pasteurised milk imported from the Mainland.
The data collected through the Food Surveillance Programme is reviewed and analysed regularly to help topical studies, assess the risk of specific foods and formulation of food safety strategies.
In 2010, a total of 3,737 food complaints were handled.
Statistics on the Food Surveillance Programme in 2010
(A) Testing of food samples
| Testing | Number | Percentage |
|---|---|---|
| Chemical (including toxicity) | ||
| Test conducted | 43,895 | - |
| Satisfactory | 43,802 | 99.8% |
| Microbiological | ||
| Test conducted | 16,917 | - |
| Satisfactory | 16,846 | 99.6% |
| Radiation level | ||
| Test conducted | 2,140 | - |
| Satisfactory | 2,140 | 100% |
(B) Enforcement of food labelling
| Food labels inspected | 55,100 |
| Written warnings issued | 197 |
| Prosecutions taken out | 47 |
Management of Food Incidents
The CFS monitors food incidents, both local and overseas. Around 720 food incidents were identified in 2010. Upon identifying food incidents, the CFS will consider factors such as risk to consumers, local regulations and availability of the concerned food product before deciding on the most appropriate risk management actions.
Besides, the CFS will communicate with related health authorities, importers and distributors on the food incidents. If necessary, the CFS will take actions such as to request the trade to stop sale, conduct testings, issue warning letters and recall products. The CFS will issue rapid alert to traders and inform them of the latest situation. It will also issue press releases to advise consumers not to consume the affected products if they are locally available. In 2010, the CFS issued about 370 trade alerts and more than 10 press releases on food incidents.
Staffed by doctors and nurses, the Food Incidents Response and Management Unit of the Risk Management Section, 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. Around 350 investigations were carried out by the unit into food-borne diseases in 2010. Vibrio parahaemolyticus, Salmonella and Staphylococcus aureus 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, contamination by food handlers, inadequate cooking and food prepared too far in advance.
Safety Control of Live Food Animals
The Veterinary Public Health Section (VPHS) and the Slaughterhouse (Veterinary) Section are mainly responsible for import control and conducting disease 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. In 2010, VPHS inspected a total of 71 registered farms and eight processing plants in the Mainland. These included farms of chickens, ducks, pigeons, geese, pigs, cattle, fish and hairy crabs.
During the year, 3.8 million live chickens and other poultry were imported into Hong Kong. These animals were subjected to quarantine and inspection procedures by VPHS staff at the designated entry point, Man Kam To Control Point.
Number of imported food poultry inspected and blood samples tested in 2010
| Type of poultry | No. of poultry imported | No. of blood samples tested | No. of animal health certificates verified |
|---|---|---|---|
| Chickens and other poultry | 3,835,857 | 48,739 | 2,369 |
Number of local and imported food animals inspected in 2010
| Type of animal | No. of animals inspected | No. of animal health certificates verified |
|---|---|---|
| Pigs | 1,719,091 | 40,476 health certificates and 8,874 admission forms for local pigs |
| Cattle | 28,035 | 2,579 health certificates and 5 admission forms for local cattle |
| Goats | 13,013 | 119 health certificates |
| No. of urine samples collected in food animals for testing of prohibited and restricted chemicals | 50,619 |
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, 7,397 tissues and blood samples were collected from food animals for testing of veterinary drug residues and for disease surveillance. One consignment of pigs was tested positive for restricted chemicals during the tissue compliance test.
The Quarantine Detector Dog Unit is responsible for interdicting raw meat smuggling at all land border control points by means of hand-carry by inbound passengers as well as mass transit by trucks. The unit serves to safeguard public health by avoiding meat from unknown sources which may contain contagious and zoonotic pathogens such as E. coli O157 and avian influenza, to be imported into Hong Kong. There are four quarantine detector dogs in the unit. In 2010, a total of 143 illegal meat import cases were detected.
Types of raw meat and number of cases detected by quarantine detector dogs in 2010
| Types of raw meat | No. of cases | Quantity (kg) |
|---|---|---|
| Meat | 62 | 158.33 |
| Poultry | 11 | 26.16 |
| Assorted Meat and Poultry | 70 | 455.23 |
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 has been 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, 121 veterinary health certificates were issued for products such as chicken powder, ice cream, mooncakes and instant noodle. The value of these products totalled $82.3 million. They were exported to Australia, Canada, the European Union, the Mainland, Macao, New Zealand 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 safety incidents 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 2010, the CFS embarked on several risk assessment projects, namely: "Literature Review on Safety Issues on Feeding Bottles and Tableware for Infants and Young Children", "Microbiological Quality of Non-prepackaged Beverages Mixed with Solid Ingredients in Hong Kong", "Acrylamide in Some Popular Foods" and "Microbiological Quality of Non-hot Served Sweet Foods in Hong Kong". The latter two were conducted jointly with the Consumer Council.
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 2010, new issues of RIB included "Reusing Disposable PET Bottles", "Nanotechnology and Food Safety", and "Botulism and Honey". The RIB on "Steviol Glycosides in Food" and "Sweeteners in Food" were updated.
Food Consumption Survey
The Government commissioned the Chinese University of Hong Kong to conduct the first territory-wide population-based Food Consumption Survey to collect information on the food consumption patterns of the general public. The final report was uploaded to the CFS website. 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. In 2010, the CFS embarked on the first Hong Kong Total Diet Study. The Food Research Centre of the Chinese University of Hong Kong was commissioned to conduct the field work of food sampling and preparation. The laboratory analysis was mainly performed by the Food Research Laboratory of the CFS. The field work, which commenced in March 2010, will be completed in February 2011. A series of reports will be released in phases.
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 ("the Amendment Regulation") was enacted by the Legislative Council on 28 May 2008 and came into effect on 1 July 2010.
In order to assist the trade and laboratory service providers to understand and comply with the Scheme, online resources (including technical guidance notes, frequently asked questions, Nutrition Label Calculator, etc.), telephone hotline and helpdesk service are provided to traders. Moreover, six trade workshops were conducted during the year. A Working Group on Nutrition Labelling comprising representatives from the trade, laboratories and the Government, continued to provide a platform to identify and tackle difficulties faced by the trade in complying with the Amendment Regulation, and enhance communication. The CFS started to receive applications for Small Volume Exemption (SVE) for Nutrition Labelling since September 2009. As at December 2010, over 30,000 applications were processed. A new computer system, the Food Import Control System, was rolled out on 9 August 2010 to facilitate the trade to report the monthly sales volumes of their SVE products as well as to submit online SVE applications. The public can also obtain information on SVE granted products through the CFS website.
On the education front, a three-year publicity and education campaign, steered by the Task Force on Nutrition Labelling Education, continued in full swing in 2010 to promote the use of nutrition labels in achieving healthy eating.
Nutrient Information Inquiry System
The Nutrient Information Inquiry System (NIIS) is a web-based searchable database containing nutrient information on over 7,000 commonly consumed food items. Since June 2007, a Food Nutrient Calculator has been incorporated to promote public awareness of and capability in choosing healthy foods. It can automatically generate nutrient information about 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 has been updated with the latest nutrient profiles from the Mainland and different overseas databases as well as local studies, and will continue its enhancement to include more nutrients (e.g. trans fatty acid) that are of public concern.
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 (JECFA), and the Joint FAO/WHO Meeting on Pesticide Residues.
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 public consultation on the proposed regulatory framework from November 2007 to January 2008. The CFS is refining the proposed regulatory framework, taking into account comments and views collected and the latest development in the regulation of pesticide residues in food in the international arena.
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. Upon finalising the proposed regulatory framework, the CFS will conduct public consultation.
In 2009, the CFS commenced work to review the local standards for shellfish toxins and mycotoxins in food. A designated Working Group was formed to conduct this review.
In order to align the local food regulation with the latest international and scientific developments, with effect from 1 August 2010, neotame and steviol glycosides which have been determined to be safe by the JECFA were added to the list of permitted sweeteners under the Sweeteners in Food Regulations.
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 collaboration with the Government Laboratory, two quantitative GM food testing methods were developed during the year under the capacity building programme. The CFS also focuses on public education on GM food. Relevant information is conveyed to the public through publications such as 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.
With the implementation of the Nutrition Labelling Scheme, the focus of the three-year publicity and education campaign has been shifted from raising public awareness and understanding to motivating behavioral changes in the use of nutrition labels in 2010. Appropriate means and channels of communication have been employed to ensure that the health messages are disseminated effectively to various target audiences. Educational and publicity materials such as posters and fact sheets, as well as consumer tools such as shopping card and web-based tool for comparing different food products and assessing individual's nutrient intake have been developed. In addition, the commencement of the Scheme on 1 July 2010 was underlined by a media campaign comprising the Food Safety Day 2010, broadcast of a series of new Announcement in the Public Interest on television, radio, public transport systems and in public housing estates. A series of feature articles highlighting the salient elements of the Scheme was published in major newspapers.
The Food Safety Charter has been jointly developed by the CFS and the food trade since 2008. It provides facilitation for the food trade to incorporate appropriate measures in their day-to-day practices. The trade is invited to sign up to the Charter 2010/11 to provide quality services grounded on food safety to Hong Kong people and tourists. Members of the public can identify the signatories by the Food Safety Charter certificates and stickers on display in their food premises.
Trade consultation forums are held regularly to exchange latest information, views and developments in food safety between the food trade and the Government. The Consumer Liaison Group provides a platform for the CFS to collect suggestions and comments from the public on various food safety issues. Focus group meetings are 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" delivers prompt email/fax messages to the food trade explaining food incidents, 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 related public health risks. Quarterly 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 Risk Communication 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 different food safety topics are regularly produced and uploaded onto the CFS website.
Starting from 2009, the CFS issued the Food Safety Reports monthly instead of bimonthly. In addition, reports on five Seasonal Food Surveillance projects, 12 Targeted Food Surveillance and three Surveys on Popular Food Items were also issued in 2010:
| Seasonal Food Surveillance |
|---|
| Lunar New Year food |
| Rice Dumplings |
| Mooncakes |
| Hairy Crabs |
| Microbiological quality of "Poon Choi" |
| Targeted Food Surveillance |
|---|
| Sudan dyes in eggs and egg products |
| Microbiological quality of ice-cream and frozen confections |
| Microbiological quality of lunch boxes |
| Microbiological quality of refrigerated prepackaged boxed meal that required reheating before consumption |
| Microbiological quality of bottled water |
| Sulphur dioxide in meat (2 phases) |
| Nitrate and nitrite in meat, meat products and cheese |
| Formaldehyde in noodlefish |
| Enterobacter sakazakii in powdered infant formula |
| Preservatives in preserved fruits and vegetables |
| Microbiological quality of Chinese cold dishes |
| Survey on Popular Food Items |
|---|
| Chinese regional cuisines (2 phases) |
| Southeast Asian food |
Summary of Risk Communication Activities in 2010
| Item | 2006 | 2007 | 2008 | 2009 | 2010 |
|---|---|---|---|---|---|
| No. of educational/publicity programmes organised | 13 | 13 | 15 | 14 | 14 |
| No. of resource materials produced | 46 | 60 | 63 | 114 | 84 |
| Total attendance at public education/communication activities | 175,278 | 186,046 | 180,000 | 173,908 | 199,098 |
| No. of public enquiries handled | 2,466 | 4,868 | 14,230 | 7,524 | 6,441 |
| No. of Hazard Analysis and Critical Control Point (HACCP) seminars/workshops | 31 | 33 | 33 | 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 Hazard Analysis and Critical Control Point (HACCP). Promotional programmes are devised for specific trade sectors, including "poon choi" suppliers, caterers for elderly homes, schools and child-care centres and food premises selling sushi, sashimi, raw oyster and meat to be eaten raw. Workshops and seminars are organised for managerial and operational staff of the target groups.
Members of the public have also been included in the publicity programme, as a better informed public is an added incentive for the trade to implement HACCP principles.
Food hygiene seminars and workshops were held from July to December 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 and is responsible for handling problems of pests 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 latest recommendations of the World Health Organization (WHO). The Department works closely with the pest control 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 the above-mentioned vector-borne diseases. Investigations are initiated immediately once a disease is reported, followed by appropriate vector control measures.
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 2010, the average ovitrap index recorded in the community was 5.1%. The highest Monthly Average Ovitrap Index (MOI) recorded in the community was 13.0% (in July) 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 2010, revealing no evidence of local transmission of malaria.
During the year, the Department conducted 790,495 inspections with 55,225 mosquito breeding places found, 168 warning letters issued, and 35 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 2010. 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 keep track of the extent of 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 their proliferation. The overall Rodent Infestation Rate obtained in 2010 was 1.5% which indicated that rodent infestation was under control.
Inspections and disinfestations are also carried out regularly to contain rodent problem. During the year, the Department handled 7,371 reports of rodent problem with 49 written warnings issued, and collected 36,136 dead rodents (11,746 trapped and 24,390 poisoned). More than 7,400 rat holes were filled.
Moreover, studies were carried out in typhoon shelters to monitor the rat-flea situation to assess the risk of plague transmission in 2010. The rat-flea index was found to be 0.26. The rat-flea indices of waterfront and land port areas under surveys in 2010 were zero except that of the Chai Wan Public Cargo Working Area (0.06). (The WHO states that a Rat-flea Index greater than 1 represents an increased plague risk for humans if the plague bacillus has been introduced into a country or region.)
Anti-rodent campaign
In addition to routine rodent control measures, the Department engages community participation in its efforts to control rodents through the annual 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 2010, 766 mosquito surveys were conducted, with MOI consistently below 1%. The rat-flea index recorded from rat-flea studies was zero. A total of 43 advisory letters were issued.
Cross-boundary Co-operation
As infectious diseases know no physical boundaries, closer ties have been established among Guangdong Province, Macao 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 2010, 104,497 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.