Food safety in the People's Republic of China (中华人民共和国的食品安全) is a growing concern in agriculture in the People's Republic of China. China's principal crops are rice, corn, wheat, soybeans, and cotton in addition to apples and other fruits and vegetables.[1] China's principal livestock products include pork, beef, dairy, and eggs.[2] The Chinese government oversees agricultural production as well as the manufacture of food packaging, containers, chemical additives, drug production, and business regulation. In recent years, the Chinese government attempted to consolidate food regulation with the creation of the State Food and Drug Administration of China in 2003, and officials have also been under increasing public and international pressure to solve food safety problems.
The growing unrest over food safety in the People's Republic of China reached a climax in early 2007, shortly after circulation to the State Council of an Asian Development Bank policy note based on a technical assistance project in collaboration with the State Food and Drug Administration and the World Health Organization. The note and a subsequent report applauded increased efforts by the Chinese government but noted remaining gaps, calling in particular for urgent reforms to strengthen and streamline inter-agency coordination and enact an overarching "basic food law". The State Food and Drug Administration of China also published a survey in early 2007 where 65% of the respondents expressed concern about food safety. Shortly afterwards, Lu Jianzhong, a member of the National Committee of the Chinese People's Political Consultative Conference (CPPCC), and China's Vice Premier, Wu Yi, issued statements of apology and promised to create a food safety monitoring system.[3]
China's food regulations are complex, its monitoring system can be unresponsive, and the government departments that oversee and enforce policies have overlapping and often ambiguous duties. There are around ten national government departments that share the responsibility to ensure food safety. There are also numerous provincial and local agencies that monitor local food production and sales. The food and drug laws themselves have been created "in an ad hoc way without the benefit of a basic food law," as Henk Bekedam of the World Health Organization told the Wall Street Journal (9 April 2007, B1).[4] The last major revision of the food and drug laws was made in 1995[5] when the Food Hygiene Law of the People's Republic of China established general food safety principles. Both the State Council and the departments under the State Council can issue regulations and directives concerning food.[6]
Changes in China's food production system are generating an awareness of food safety problems. China's agricultural system is composed mostly of small land-holding farmers[7] and subsistence agriculture. China, however, has less arable land than other nations and farmers intensively use fertilizer and pesticides to maintain high food production.[8] Food is sold in both open air markets and urban supermarkets, and by the late 1990s, China's farms were adapting to more specialized crop production as the local markets become more connected to the national and international markets. However, local authorities largely control food regulation enforcement[9] unless the central government steps in. As urban consumers' incomes increase, the demand for quality food goods, safer production, and processed foods also increases, and urban residents and supermarkets attract more national and media attention to food problems.[10]
On July 10, 2007, Zheng Xiaoyu, the former head of State Food And Drug Administration, was executed by lethal injection for taking bribes from various firms in exchange for state licenses related to product safety.[11]
Approximately ten government departments and ministries under the State Council monitor food safety in China.[12] These include the Ministry of Health, the State Food and Drug Administration, the State Drug Administration, and the Ministry of Agriculture, the State Administration for Industry and Commerce, the General Administration of Quality Supervision, Inspection, and Quarantine, the Ministry of Commerce, the Ministry of Science and Technology, and the National Institute of Nutrition and Food Safety.
No single agency is responsible for all food safety regulations and enforcement in China, and the departments' duties often overlap.[13] There are also local and regional food safety agencies, but there is no clear hierarchy of agencies at the local or national levels. In response to complexity of numerous agencies monitoring and regulating food safety, the National People's Congress established the State Food and Drug Administration in 2003. The State Food and Drug Administration was supposed to oversee the all aspects of food safety regulations and unify food safety controls. However, the State Food and Drug Administration has not become the main governing department as the government had intended, and the other national agencies have continued to regulate and monitor food safety. This unclear division of duties has created conflict and confusion when citizens have sought to complain or a when major crisis needed to be resolved.
The National People's Congress (NPC)[14] is primarily responsible for implementing food safety laws. The Standing Committee of the National People's Congress and the State Council also regulate food safety issues.[15] The Food Hygiene Law of 1995, passed by the NPC, amended the 1982 Food Hygiene Law and regulates most aspects of food safety.[16]
Established in 1949, the Ministry of Health[17][18] encompasses general health policies, health law enforcement, children's and seniors' health policies, and diseases and emergencies. It provides experts to investigate poisoning cases, enforces food safety and hygiene inspections, and can order local health departments to conduct investigations into food quality violations. The Ministry of Health also oversees the Institute of Food Safety Control and Inspection, an agency that has studied and identified unsafe foods and has helped local health authorities form policies and training programs to combat unsafe food production and handling practices. The Chartered Institute of Environmental Health has called the Ministry of Health "the most important governing body of food safety."[19]
The general duties of the Ministry of Health are:[20]
The State Food and Drug Administration of China (SFDA) was founded in 2003 as part of China's efforts to improve food safety.[21] The SFDA is responsible for overseeing and coordinating the other health, food, and drug agencies. It is "directly under the State Council, which is in charge of comprehensive supervision on the safety management of food, health food and cosmetics and is the competent authority of drug regulation."[22] The SFDA encompasses ten departments that regulate and oversee different aspects of food and drug law. These include the General Office Department of Planning and Finance, the Department of Policy and Regulations, the Department of Food Safety Coordination, the Department of Food Safety Supervision, the Department of Drug Registration, the Department of Medical Devices, the Department of Drug Safety and Inspection, the Department of Drug Market Compliance, the Department of Personnel and Education, and the Department of International Cooperation.
The general duties of the SFDA are:[23]
The State Drug Administration (SDA) was established in 1998. The SDA was intended to consolidate the agencies that had previously managed drug policy, the State Pharmaceutical Administration of China (SPAC) and the Bureau of Drug Policy Administration (BDPA). The SDA operates alongside the State Administration of Traditional Chinese Medicine (SATCM), an agency that oversees traditional medicines.[24] In 2003, the SDA was merged with the State Food and Drug Administration.[25]
The Ministry of Agriculture handles farm-level food safety regulations and policies.[26] One of its most important duties is to regulate and enforce the use of chemicals, pollutants, and pesticides on farms.[27][28] The Institute for the Control of Agrochemicals (CAMA) is responsible for pesticide testing, research, and use regulations, and operates under the Ministry of Agriculture.[29] The Ministry of Agriculture is also responsible for animal health, and has handled the bird flu (avian influenza) outbreaks and[30] the mad cow disease prevention measures.[31] The Ministry of Agriculture works with local governments, operates disease research laboratories, and administers vaccinations and emergency response measures.[32]
The Ministry of Commerce handles the regulations governing food trade, foreign investments, food distribution, and domestic and international market activities.[33]
The General Administration of Quality Supervision, Inspection, and Quarantine (GAQSIQ) oversees food imports and exports and quarantines at the national and local levels.[34] It functions as a law enforcement agency. There are 19 departments under the GAQSIQ, and the ones that handle food safety issue are the Department of Supervision on Animal and Plant Quarantine, the Bureau of Import and Export Food Safety, and the Department of Supervision of Food Production.[35] The GAQSIQ was made a Ministry in 2001.[36]
The State Administration of Industry and Commerce (SAIC) regulates market activity and is directly under the State Council.[37] Under the SAIC, the Consumer Protection Bureau enforces standards for market products and investigates fake products, the Enterprise Registration Bureau issues business licenses, the Department of Personnel and Education oversees local SAIC departments, and the Department of Advertising Regulation works against fake or misleading advertising.[38]
The Mission the of SAIC is as follows:[39]
The Ministry of Science and Technology (MST) investigates technological innovation to improve food production, manufacturing, and processing. The MST regulates the quality of market products, oversees the inspection of market products, and punishes sellers who violate product quality standards. The MST also regulates product packaging and can confiscate or destroy illegal products or product ingredients.[40]
The National Institute of Nutrition and Food Safety (NINFS) is a research agency for nutrition and food hygiene.[41] It is affiliated with the Chinese Center for Disease Control and Prevention and the Chinese Academy of Preventive Medicine.[42] The objectives of the Institute are to study the health-related nutrition and food hygiene problems and to train nutrition and food hygiene specialists. These objectives have been established for the purposes of improving nutritional status, preventing food borne diseases, and strengthening the physical fitness of the people. The Institute not only undertakes basic research and field studies, but also organizes and conducts nationwide research programs. In addition, the Institute gives advice on the nutrition and food hygiene projects of the health units at the provincial level. The Institute comprises 13 departments some of which include Elderly Nutrition, Maternal and Child Nutrition, Community Nutrition, School Nutrition, Food Chemistry, and Food Toxicology. The Institute has been authorized to award doctoral and masters degrees in the field of nutrition and food hygiene. Since 1981, the Institute has been designated as the FAO/WHO Collaborative Center for Food Contamination Monitoring in China. The office of the Chinese Nutrition Society is also located in the Institute building. The Institute was formerly known as the Nutrition Division of the National Institute of Health of the Public Health Administration, which was established in 1941. After the founding of the People's Republic of China, the Institute was affiliated with the following leading bodies under the title of the Department of Nutrition or the Department of Nutrition and Food Hygiene:
On October 2007, China approved new legislation aimed at improving and monitoring national standards in food production. New laws will standardize food production and clamp down on illegal activity in the industry. The General Administration of Quality Supervision, Inspection and Quarantine drafted the new regulations covering the production, processing and sale of food. They will create national standards and replace the existing patchwork of rules which are overseen by several government agencies.[43]
Many have been widely publicized as the causes of the 2007 outcries. These incidents began as early as 2004 and reached a climax in 2007. These incidents are meant to be illustrative of the overlapping duties of food safety agencies in China.
In 2003, several small producers of Jinhua hams operated out of season and produced hams during warmer months, treating their hams with pesticides to prevent spoilage and insect infestation.[44] The hams were soaked in the pesticide Dichlorvos, which is a volatile organophosphate insecticide used for fumigation.[45]
In April 2004, at least 13 babies in Fuyang, Anhui and 50-60 more in the rural areas of the Anhui province died of malnourishment from ingesting fake milk powder. 100-200 other babies in Anhui Province suffered malnutrition but survived. Local officials in Fuyang arrested 47 people who were responsible for making and selling the fake formula and investigators discovered 45 types of substandard formula for sale in Fuyang markets. Over 141 factories were responsible for the production of the formula and Chinese officials seized 2,540 bags of fake formula by mid-April. The State Food and Drug Administration ordered an investigation in May, 2004.
The babies suffered from "big head disease" according to Chinese doctors. Within three days of ingesting the formula, the babies' heads swelled while their bodies became thinner from malnourishment. The fake formulas were tested to have only 1-6% protein when the national requirement was 10% protein. The government promised to compensate families and help cover medical bills. Most of the victims were rural families.[46][47][48]
In 2004, testing by Chinese authorities determined that some brands of cellophane noodles produced in Yantai, Shandong were contaminated with lead. It emerged that several unscrupulous companies had been making their noodles from cornstarch instead of mung beans in order to save costs, and, to make the cornstarch transparent, were adding lead-based whiteners to their noodles.[49] In December 2006, Beijing authorities again inspected cellophane noodles produced by the Yantai Deshengda Longkou Vermicelli Co. Ltd.[50] in Siduitou village, Zhangxing town, Zhaoyuan city, Yantai, this time determining that sodium formaldehyde sulfoxylate, a toxic and possibly carcinogenic industrial bleach which is an illegal food additive in China, had been used in the production of the noodles. The company, which formerly sold its noodles both in China as well as overseas, was ordered to cease production and distribution.[51][52][53][54] The company's website has since been shut down.
In June 2004, the Chengdu Quality Inspection Department released figures that only about 23% of all pickled vegetables produced in Chengdu had an acceptable amount of chemical additives. The labels on the pickled vegetables that was supposed to indicate the chemical content were also found to be inaccurate. In Sichuan, the factories had been using industrial-grade salt to pickle the vegetables and had been spraying pesticides containing high amounts of DDVP on the pickled vegetables before shipment.[55]
In Spring 2004, four men died of alcohol poisoning in Guangdong Province and eight other men were hospitalized in the People's Hospital of Guangzhou. Wang Funian and Hou Shangjian, both from Taihe Town, died in May after drinking liquor bought from the same vendor. Two other men, one a migrant worker, died the previous night in Zhongluotan in Hunan Province. Authorities in the local health department suspected that the makers of the fake liquor blended industrial alcohol and rice wine, and closed several unlicensed liquor manufacturers.[56]
Stories began circulating in the press about cheap soy sauces made from human hair. These sauces were manufactured in China using a chemical amino acid extraction process similar to artificially hydrolyzed soy sauces and then quietly exported to other countries. An investigative report that aired on Chinese television exposed the unsanitary and potentially contaminated sources of the hair:
| “ | When asking how the amino acid syrup (or powder) was generated, the manufacturer replied that the powder was generated from human hair. Because the human hair was gathered from salon, barbershop and hospitals around the country, it was unhygienic and mixed with condom, used hospital cottons, used menstrual cycle pad, used syringe, etc.[57] | ” |
In response, the Chinese government banned production of soy sauces made from hair. Other carcinogens remain, see 3-MCPD.
In 1996, China banned food manufacturers from using Sudan I red dye to color their products. China followed a number of other developed nations in banning the dye due to its links to cancer and other negative health effects. However, officials in the General Administration of Quality Supervision, Inspection and Quarantine, the State Bureau of Industry and Commerce, and the State Food and Drug Administration discovered in 2005 that Sudan I was being used in food in many major Chinese cities. In Beijing, the Heinz Company added the red dye to chili sauce; in Guangdong, Zhejiang, Hunan, and Fuzhou provinces, the red dye was discovered in vegetables and noodles. Kentucky Fried Chicken (KFC) used the red dye in its 1,200 restaurants, and medicine in Shanghai also contained Sudan I.
Companies in China had been using Sudan I illegally for years before 2005, and government officials gave two reasons why the 1996 ban had not been adequately enforced. The first reason was that there were too many agencies overseeing food production, creating loopholes and inefficiency. The second reason was that the government agencies were not equipped or trained with the food testing equipment that could have detected the dye earlier. Officials announced that they would begin to reform the food safety system on national and local levels.[58]
The State Food and Drug Administration reported that their officials had resolved 14 cases involving fake drugs and 17 cases involving "health accidents" at drug manufacturing facilities.[59] One of these incidents involved fake Armillarisni A; ten people injected with the fake drug died in May, 2006.[60][61] The drug quality inspectors at the factory that produced the Armillarisni A drugs failed to notice that the chemical diglycol had been added to drugs. In July, 2006, six people died and 80 more became sick after ingesting an antibiotic with disinfectant as an ingredient.[62] In 2006, the government also "revoked the business licenses of 160 drug manufacturers and retailers."[62]
On September 1, 2006, more than 300 students at Chongzhou City Experimental Primary School in China's Sichuan Province got food poisoning after lunch. Of those, approximately 200 students had to be hospitalized due to headaches, fevers, vomiting, and diarrhea. The school was temporarily closed for an investigation.[63] On the same day, middle school students in China's Liaoning Province also got food poisoning after eating dinner at school. The Ministry of Education ordered an investigation, and officials suspected that the cause of the food poisoning was unsanitary conditions at the schools. During summer vacation, the schools had not been cleaned or disinfected, and the pupils might have been exposed to unsanitary food or drinking water when they returned in September.[64]
In late 2006, officials in Shanghai and Beijing discovered illegal amounts of chemicals in turbot. As The Epoch Times explained, "China started importing turbot from Europe in 1992. Currently, China's annual output is 40,000 tons. Since turbot have weak immune systems, some farmers use prohibited drugs to maintain their productivity, as their fish-farming technologies are not sufficient to prevent disease."[65] Shanghai officials from the Shanghai Food and Drug Administration found carcinogenic nitrofuran metabolites in the fish and Beijing found additional drugs, including malachite green, in its fish. Other cities, including Hangzhou, have begun testing turbot fish and banning the turbot shipped from Shandong Province. Many restaurants in Shanghai, Beijing, and Hong Kong stopped purchasing turbot after officials discovered the high amounts of illegal antibiotics.[66]
In early 2006, Greenpeace tested vegetables in two Hong Kong
grocery stores, Parknshop and Wellcome, and discovered that over
70% of their samples were covered in pesticide residue. Thirty
percent of their vegetable samples exceeded safe levels of
pesticides and several tested positive for illegal pesticides, such
as DDT, HCH and Lindane. Greenpeace explained that nearly 80% of
vegetables in these grocery stores originated from mainland China.
John Chapple, manager of Sinoanalytica, a Qingdao-based food
analysis laboratory, supplemented Greenpeace's information. He was
not surprised by the findings and explained that farmers in China
have little knowledge of correct pesticide use.[67]
Although many Chinese farms are converting to organic agriculture,
pesticide use in many areas remains high.[68]
In June, July, and August 2006, the Shuguo Yanyi Restaurant in Beijing served raw Amazonian snail meat and, as a result, 70 diners were diagnosed with angiostrongylus meningitis. The snail meat contained Angiostrongylus cantonesis, "a parasite that harms people's nervous system" causing headaches, vomiting, stiff necks, and fevers.[69] No one died from the meningitis outbreak and the Beijing Municipal Office of Health inspection did not find any more raw snails in 2,000 other restaurants. However, the Beijing Municipal Office of Health prohibited restaurants from serving raw or half-cooked snails and disciplined the Shuguo Yanyi Restaurant. The Beijing Friendship Hospital, where the first meningitis case was treated, began a program to educate doctors on the treatment of angiostrongylus meningitis. The Guangzhou Center for Disease Control and Prevention explained that these meningitis cases were the first outbreaks since the 1980s.[70]
In December 2006, sixteen diners were hospitalized after eating a poisonous variety of boletus mushrooms in Beijing at the Dayali Roast Duck Restaurant. The mushrooms caused nausea, vomiting, and dizziness and the ill diners were treated at the Bo'ai Hospital and the 307 Hospital of the People's Liberation Army.[71]
In November 2006, Chinese authorities at the Ministry of Health had warned of the rising number of mushroom poisonings. "From July to September, 31 people were killed and 183 were poisoned by toxic mushrooms."[72] Officials worried that the public could not accurately separate edible mushrooms from poisonous ones.
According to John Newton of Interpol, Chinese organized crime is involved in working across national boundaries and faking drugs on an industrial scale, now appearing throughout Africa.[73] China Central Television cited an official saying those making the false albumin were making a 300% profit, assisted by shortages of the genuine product.[74]
In March 2007, the Guangzhou Information Times accused Kentucky Fried Chicken (KFC) of adding oil filtering powder, magnesium trisilicate, to its frying oil. It reported that KFC restaurants in several cities in the northwest Shaanxi Province used this chemical so that the frying oil could be used repeatedly for up to ten days. KFC argued that the additive was safe by United States and international standards, but health officials in Xianyang, Yulin, and Xi'an, all cities in the Shaanxi Province, inspected their local KFCs and confiscated the frying powder. Gaungzhou city officials also began in investigation into the frying oils, and the cities requested that the Ministry of Health step in.[75][76] KFC claimed that the oil filtering powder had not caused health problems and met local and international standards, but local Chinese authorities claimed that reusing the powder decreased its nutritional value and was connected to cancer.
In May 2007, The General Administration of Quality Supervision, Inspection, and Quarantine (AQSIQ) confirmed that two domestic companies had exported melamine-contaminated wheat gluten and rice protein blamed for the deaths of dogs and cats in the United States.[77] In August 2007, AQSIQ introduced recall systems for unsafe food products and toys and on December 3, 2007, China ordered 69 categories of products to be bar-coded at factories amid efforts to improve product safety, in response to several recent incidents, including: "scares rang[ing] from ducks and hens that were fed cancer-causing Sudan Red dye to make their egg yolks red, to pet food made of melamine-tainted wheat protein that killed scores of dogs and cats in the United States."[78][79] See also 2007 pet food crisis.
Close to a hundred manufacturers of stinky tofu in Guangdong province were found to use a combination of sewage, slop, and Iron(II) sulfate to accelerate production and improve appearance of their fermented product.[80]
In January 2008, several Japanese people in the Hyōgo and Chiba prefectures fell ill after consuming Chinese-produced jiaozi (pork dumplings) tainted with the insecticide methamidophos.[81][82][83][84][85][86] The dumplings had been produced by the Tianyang Food Plant in Hebei Province[87] and sold by JT Foods and the Japanese Consumers' Co-operative Union. Kyodo News reported that about 500 people complained of agonies.[88] On February 5, 2008, Hyōgo and Chiba prefectural police announced that they were treating these cases as attempted murder.[89] and both prefectural police departments established a joint investigation team.
When Japanese police and other prefectural authorities inspected the recalled dumplings, they found pesticides other than methamidophos, including Dichlorvos and Parathion.[90][91][92][93] The Japanese National Police Agency found these toxins in packages that were completely sealed,[94][95] concluding that it would have been nearly impossible to insert such toxins into the packages from the outside.[96] They provided the test results to the Ministry of Public Security of China (MPS) at the conference held in Tokyo from February 21 to 22, and 25 to 27, 2008 in Beijing.[97]
Investigations jointly held by both the Chinese and Japanese governments cleared the Chinese company of responsibility after finding no traces of any poison in the raw material used nor in the factory.[98][99] Officials are now treating this incident as a deliberate poisoning, and an investigation is underway.[100] On February 28, 2008 the MPS criminal investigation bureau announced that there was little chance that methamidophos had been put into the dumplings in China, and declared that the Japanese police had rejected the requirement by the MPS to check the scene, relative material evidences, and test reports, thus information on the evidence was not fully provided to the MPS.[101] On the same day, Hiroto Yoshimura, the Comissionor-General of Japan's National Police Agency, argued against the Chinese authorities that the Japanese had already offered test results and photographic evidence and claimed that some part of China's assertion "cannot be overlooked".[102][103] They asked Chinese authorities to offer the basis and evidence.[104]
On August 5, 2008, Japanese media revealed that some Chinese people who had eaten the recalled Chinese dumplings made by Tianyang Food had also become sick after the incident in Japan, in mid-June 2008; the cause was again found to have been methamidophos contamination.[105][106][107][108][109] The Chinese government alerted the Japanese government to this fact just before the 34th G8 summit in July 2008. The Yomiuri Shimbun reported that this incident has increased the suspicion of foods produced in China.[110]
In July 2008, it was announced that the Whole Foods supermarket chain in the United States had been selling powdered ginger produced in China, which was labeled as organic, but when tested was found to contain the banned pesticide Aldicarb.[111][112][113] The ginger had been mistakenly certified organic by Quality Assurance International, who relied on two Chinese certifiers because, under Chinese law, foreigners may not inspect Chinese farms.[114]
In September 2008, a fresh outbreak of kidney disease occurred, due to baby formula contaminated by melamine. Six babies died and 294,000 were made sick by the tainted formula with 51,900 requiring hospitalization.[115][116] The supplier of the milk, Sanlu Group, is a name brand and is a major player in the industry in China. The company is said to have known of the problem for months, but claims the contaminant came from milk suppliers.[117][118]
In October 2008 news emerged certain egg products produced by Hanwei Group were also contaminated with melamine.
Tapioca pearls used for bubble tea was adulterated with macromolecular polymers to improve their texture.[119]
To improve the chewiness and texture of the mantou (steamed buns) the pesticide Dichlorvos was added. In addition, sulphur was used to whiten the buns to improve their physical appearance. [120]
Businesses in Qingdao have been caught marinating duck meat in goat or sheep urine to give the duck with the smell and taste of lamb. The duck is then sold as lamb to customers. [121]
Wuhan inspectors discovered that most of the pork blood pudding in Chinese markets contain little actual blood,but is manufactured with formaldehyde, corn starch, industrial grade salt, in addition to artifical food colouring.[122]
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