food safety in south asia - saarc agriculture centre

Food Safety in South Asia Challenge, Opportunity and Policy Perspectives

Editors

Dr. Md. Younus Ali

Dr. Rudra Bahadur Shrestha

Dr. S. M. Bokhtiar

Dr. Ashis Kumar Samanta

SAARC Agriculture Centre (SAC)

South Asian Association for Regional Cooperation (SAARC)

BSAFE Foundation, Bangladesh

ii

Food Safety in South Asia: Challenge, Opportunity and

Policy Perspectives

Regional Expert Consultation Meeting on “Food Safety: Current Status,

Challenge and Policy Perspectives in South Asia” held on 26-28 August 2019 in

SAARC Agriculture Centre (SAC), Dhaka Bangladesh.

Editors

Dr. Md. Younus Ali, STO, SAARC Agriculture Center (SAC), Dhaka, Bangladesh.

Dr. Rudra Bahadur Shrestha, SPS (Policy Planning), SAC, Dhaka, Bangladesh.

Dr. S. M. Bokhtiar, Executive Chairman, BARC, Dhaka, Bangladesh.

Dr. Ashis Kumar Samanta, SPS (Livestock), SAC, Dhaka, Bangladesh.

July 2020 @ SAARC Agriculture Centre, Dhaka, Bangladesh.

Published by the SAARC Agriculture Centre (SAC), BARC Complex, Farmgate,

Dhaka-1215, Bangladesh (www.sac.org.bd) and BSAFE Foundation, Bangladesh.

All rights reserved

All rights reserved. No part of this publication is permissible to reproduce store

in retrieval system or transmit in any form or by any means of electronic,

mechanical, recording or otherwise without prior permission of the publisher.

Citation

Ali, Y., Shrestha, R.B., Bokhtiar, S.M., and Samanta, A.K. (2019). Food Safety in

South Asia: Challenge, Opportunity and Policy Perspectives. SAARC Agriculture

Centre (SAC), Bangladesh, and BSAFE Foundation, Bangladesh. 184 pp.

This book contains papers of the SAARC Regional Expert Consultation Meeting on

“Food Safety: Current Status, Challenges and Policy Perspectives in South Asia” jointly

organized by the SAARC Agriculture Centre, Bangladesh and BSAFE Foundation,

Bangladesh during 26-28 August 2019. The country papers have made by the expert

representatives of their respective governments. The views expressed in this publication

are those of the author(s) and do not necessarily reflect whatsoever on the part of the

views of the SAARC Agriculture Centre concerning the legal or development status of

any country, territory, city, or area or of its authorities, or concerning the delimitation of

its frontiers or boundaries.

ISBN 978-984-34-7421-6

Cover Design: S. Rahman Firoz and Ms. Sanjida Akter

Price: US$ 20 for SAARC Member Countries and US$ 30 for other Countries

Printed by: Natundhara Printing Press

Corresponding Editor’s Information

Dr. Rudra Bahadur Shrestha, SPS (Policy Planning), SAARC Agriculture Center

(SAC), Farmgate, Dhaka-1215, Bangladesh. Email: [email protected]

http://www.sac.org.bd/

mailto:[email protected]

iii

Safer food for better health - WHO

Food safety, everyone's business - World Food Safety Day 2019

iv

Foreword

Food safety is the assurance that food will not cause

any harm to the consumer when it is prepared

and/or eaten according to its intended use. Unsafe

food containing harmful bacteria, virus, parasites,

fungi or chemical (pesticides/ fungicides/

antimicrobial/heavy metals etc.) causes more than

200 diseases starting from diarrhea to cancer. It is

estimated that each year 600 million people (almost

one in every ten) in the world becomes ill owing to

the consumption of contaminated foods. Safe food production followed

by precautionary measures during the entire food value chain could

prevent most of the foodborne diseases and protect the human health.

Nevertheless, food and nutritional safety is the major challenge in the

South Asian region.

Indeed, food safety is a collective responsibility of government,

producers and consumers. Realizing the significance of the food security

and food safety in South Asia, the SAARC Agriculture Center (SAC) in

collaboration with BSAFE Foundation organized a Regional Consultation

Meeting on “Food Safety: Current Status, Challenges and Policy

Perspectives in South Asia” during 26-28 August 2019. The current

publication is the output of this consultation program, which embodied

the status, challenges, regulatory framework, and policy requirement

pertaining to “Food Safety” among the SAARC Member States. I hope

this book would be much useful to the researchers, academia,

professionals, extension workers, governments, and policy makers to

initiate activities appropriately for sustainable development as well as

safeguarding human health from food borne diseases.

I would like to acknowledge the SAC and BSAFE Foundation for

organizing the program; National Focal Point Experts from SAARC

Member States for their comprehensive country papers; Dr. Md. Younus

Ali, Senior Technical Officer, SAC, Dr. Rudra Bahadur Shrestha, Senior

Programme Specialist (Policy Planning), SAC, Dr. SM Bokhtiar, Executive

Chairman, BARC, and Dr. Ashis Kumar Samanta, Senior Programme

Specialist (Livestock), SAC for their outstanding contribution in bringing

out this valuable book.

Dr. Mian Sayeed Hassan

Director, SARC Agriculture Center, Dhaka, Bangladesh

v

Acknowledgment

The present Volume “Food Safety in South Asia: Challenge, Opportunity and

Policy Perspectives” is an output of a Regional Consultation Meeting on

“Food Safety: Current Status, Challenges and Policy Perspectives in South Asia”

held on 26-28 August 2019 in Bangladesh organized by SAARC Agriculture

Centre, Bangladesh in collaboration with BSAFE Foundation, Bangladesh.

In this forum, the government representatives from SAARC Member

States, experts, researchers, and academia participated with innovative ideas

and experience that contributed to come up with this Volume. Thus, we are

delighted to publish this book, which would be useful to formulate policies

on improving food safety in the South Asia region.

We would express our sincere gratitude to the SAARC Agriculture

Center (SAC) and the BSAFE Foundation; the SAARC Member States,

particularly the Ministry of Foreign/ External Affairs and Ministry of

Agriculture; SAARC Secretariat; and National Focal Point Experts for their

untiring contributions in this endeavor.

Dr. Younus Ali

Dr. Rudra B. Shrestha Dr. SM Bokhtiar Dr. AK Samanta

vi

Acronyms

AAS Atomic Absorption Spectrometry

ADS Agriculture Development Strategy

AFoSaN African Food Safety Network

ASEAN Association of South East Asian Nations

CAB Conformity Assessment Body

CAC Codex Alimentations Commission

CCP Codex Contact Point

COP Code of Practices

EFSA European Food Safety Authority

FBD Foodborne Diseases

FBO Food Business Operators

FSI Food Safety Indicators

FSMS Food Safety Management System

GAP Good Agricultural Practices

GCMS Gas Chromatography Mass Spectrometry

GHP Good Hygiene Practices

GNH Gross National Happiness

HACCP Hazard Analysis on Critical Control Points

HiHi Hand in Hand Initiative

IEC International Electro Technical Commission

INFOSAN International Food Safety Authorities Network

IPPC International Plant Protection Convention

IPR Intellectual Property Rights

vii

ISO International Organization for Standardization

LCMS Liquid Chromatography Mass Spectrometry

MRA Mutual Recognition Agreement

MRL Maximum Residue Limits

OIE World Organization for Animal Health

QMS Quality Management System

SARSO South Asian Regional Standards Organization

SDGs Sustainable Development Goals

SGR Strategic Grain Reserve

SOP Standard Operating Procedures

SPS Sanitary and Phytosanitory

WHA World Health Assembly

WHO World Health Organization

WTO World Trade Organization

viii

Highlights of the Book

This book “Food Safety in South Asia: Challenge, Opportunity and

Policy Perspectives” is an output of a regional consultation meeting on

“Food Safety: Current Status, Challenges and Policy Perspectives in

South Asia” held on 26-28 August 2019 in Bangladesh organized by

SAARC Agriculture Centre, Bangladesh in collaboration with BSAFE

Foundation, Bangladesh. This book has ownership of the SAARC

Member States’ National Focal Point Experts, authors, editors and

publishers.

This book focuses on the current situation of food safety; challenges

and opportunities; policies, rules and regulations compliance with the

international agreements and commitments; and policy

recommendations to improve the food safety at the country level and

the regional level.

This book suggests some major policy interventions include: i)

Efficient monitoring and surveillanceof food borne disease and food

contamination; ii) Establish data management systems; iii) Establish

common food safety standards and guidelinesin the SAARC region;

iv) Accredited laboratory system; v) Enhance the awareness and

advocacy programs; and vi) Capacity building of the concerned

stakeholders.

This book is useful for the farming communities, researchers,

academicians, public and private food companies, development

professionals, policymakers, governments, international

organizations, development partners, and civil societies to gain the

synergetic efforts for improving food safety and better life in South

Asia region.

ix

Contents

Foreword iv

Acronyms vi

Highlights of the Book viii

Thematic Regional Perspective Papers

Chapter 1 Joint CommuniqueFood Safety in South Asia:

Challenge, Opportunity and Policy Perspectives

Rudra Bahadur Shrestha, Mohammed Zainul Abedin &

Nazrul Islam

1

Chapter 2 Improving Food Safety in Agriculture and Food

Systems: A Strategic Policy Pathway for 2030 in

South Asia

Rudra Bahadur Shrestha & Bal Kumari Sharma Khanal

8

Country Perspective Papers

Chapter

3 Food Safety: Current Status, Challenge,

Opportunity and Policy Perspectives in Afghanistan

Ahmed Faridon Kaker & Rudra Bahadur Shrestha

34

Chapter


Opportunity and Policy Perspectives in Bangladesh

Abu Shahid Saleh Md. Zubery

47

Chapter


Opportunity and Policy Perspectives in Bhutan

Gyem Bidha

65

Chapter


Opportunity and Policy Perspectives in India

Vishwajeet Haldar

82

Chapter


Opportunity and Policy Perspectives in Maldives

Shaufa Shareef

101

x

Chapter


Opportunity and Policy Perspectives in Nepal

Bal Kumari Sharma Khanal, Mohan Krishna Maharjan

& Rudra Bahadur Shrestha

118

Chapter


Opportunity and Policy Perspectives in Pakistan

Saif Ullah Janbaz

140

Chapter


Opportunity and Policy Perspectives in Sri Lanka

H.M. Gammanpila & Rudra Bahadur Shrestha

157

Report of the Consultation Meeting 177

List of the Participants 180

Biobrief of Paper Contributors 183

Regional Perspective

Chapter 1

Joint Communique

Food Safety in South Asia: Challenge, Opportunity

and Policy Perspectives

(26-28 August 2019/SAARC Agriculture Centre, Dhaka Bangladesh)

Rudra Bahadur Shrestha1*, Mohammed Zainul Abedin2 and Nazrul Islam3 1Senior Program Specialist, SAARC Agriculture Center, Dhaka, Bangladesh

Email: [email protected] 2President, BSAFE Foundation, Dhaka, Bangladesh

Email: [email protected]; [email protected] 3Professor, North South University, Dhaka 1229, Bangladesh

Email: [email protected]

*Corresponding Author

The South Asia region consisting of eight countriesAfghanistan,

Bangladesh, Bhutan, India, Maldives, Nepal, Pakistan and Sri Lanka

covers around 3% of world's landmass and represents about 24% of the

world’s population. Around 67% of its population are smallholders,

having less than one hectare of land, adopting integrated farming system.

Food safety in the South Asian countries is enduring issue and

intertwining challenge due to consuming contaminated, unsafe, and

unhygienic foods that have long-term multi-faceted adverse effects to the

people. Unsafe food containing harmful bacteria, virus, parasites, fungi

or chemicals (pesticides/ fungicides/ antimicrobial / heavy metals etc.)

causes more than 200 diseases and about 600 million people suffer from

illness every year in the world, and more pronounce in South Asian

countries. It has adverse effects on the health, livelihoods, economic,

social, political and environmental dimension of the society, which needs

to be addressed with appropriate policy initiatives.

Legal framework including policies and programs, acts, rule and

regulations align with international food standardization requirements

need to be enacted at the national, regional and international level.

Realizing this fact, the SAARC Agriculture Center (SAC) in collaboration

with BSAFE Foundation organized a regional consultation meeting on


Food Safety in South Asia: Challenge, Opportunity and Policy Perspectives

2

26-28 August, 2019 in Dhaka, Bangladesh. In this forum, 12 papers were

presented from Country Focal Point Experts as well as from leaders of

academic universities and research institutions, and from the

professionals in different thematic areas of food safety in the region.

The participants of the consultation program were divided into three

groups and assigned a thematic area to each group to brain storming to

be useful for the improvement in food safety. On the basis of insight

shared in the three days forum and brain storming in the group work,

following outputs are derived into three thematic areas to be endorsed in

the South Asia region.

1. Constraints/ Challenges and Opportunities for Food Safety

Management System

The constraints/ challenges and opportunities of food safety along the

food systems consisting of production, processing, distribution,

consumption is presented in Table 1.

Table 1. Constraints/ challenges and opportunities in food safety

Challenges Opportunities and Recommendations

Production (growing- harvesting)

Knowledge and information gap

between available technologies

and field level application.

Proper dissemination, adoption and utilization

of available research-based technologies,

knowledge and information tools could be

enhanced food safety to a great extent from

the primary production sources.

Lack of quality inputs supply.

Wider demand of quality inputs by the

producers. Proper support and monitoring of

quality assurance is required.

Widespread unethical behaviors

of stakeholders.

Farmers’ organization, resource centers,

government institutions need to be developed

for training, awareness, information

dissemination and motivation on code of

conducts.

Climate change risks and

uncertainties.

Climate smart technologies need to be

developed, disseminated and adopted.

Processing (transforming, packaging, handling, branding)

Lack of Good Manufacturing

Practice (GMP), Good Hygienic

Practice (GHP), Good

HACCP guidelines available and the

standardization requirements need to be

implemented. Traceability technology and

Shrestha, Abedin & Islam: Joint CommuniqueFood Safety in South Asia….Policy Perspectives

3


Agriculture Practice (GAP), and

Good Storage Practice (GSP)

under Global warming potential

(GWP).

echo-labelling system needs to be enforced.

GMP, GHP, GAP, GSP and GWP need to be

adopted in the countries.

Inadequate laboratories,

preservation, storage,

transportation and other

associated necessary

infrastructure facilities.

Development of appropriate technological

facilities are required by governments and

private sectors.

Adequate laboratory facilities to be

established and operated.

Public-private partnership approach could

be the best approach among the

government agencies, academic and

research institutions, private sectors, and

concerned stakeholders for establishing

and operating these infrastructures.

Limited skilled manpower. Internationally accredited training modules

and manuals are available.

Investment on manpower development is

financially viable.

Relevant academic and training

organizations are available.

Lack of knowledge and

indiscriminate use of chemicals

and other ingredients.

Regulatory and legal framework is required

for appropriate and skillful use of chemicals.

Consumption of unlabeled and

uncertified products.

Awareness creation to the consumers and

suppliers to trade and use of labelled,

certified and branded products.

Regular monitoring from the authorities

and strong implementation

Distribution (warehouse, transportation, retailing)

Insufficient storage,

transportation infrastructure

facilities and human resource

available.

Development of appropriate facilities are

required by GO, governments, private

sectors as well as through public-private

partnership.

Develop manpower by engaging academic,

research and training organizations.

Un-hygienic condition during

food distribution and marketing.

There are standard HACCP guidelines

available and those need to be implemented.

Traceability technology and echo-labelling

system needs to be enforced.


4


Intentional and unintentional

unapproved ingredients use.

Modernize, harmonization the roles and

regulations.

Consumption (cooking, eating)

Consumption of unhygienic

foods including street foods.

• Inadequate food safety surveillance and

monitoring issue.

• Control and monitoring of street foods.

• Standards and guidelines, consumers

demand.

Gap in Key Performance Area

(KPA).

There are available guidelines.

Use and application of those available

guidelines need to assured.

Recycle /Reuse/Disposal (food, food packing)

Gap in KPA. Legal frame on process improvement, safety

and health, security.

Inadequate reuse practices. Standards guideline and enforcement to reuse

of the foods, raw materials and packaging

materials.

2. Research and Policy Gaps on Food Safety

2.1 Research and Education

i) Lack of intensive consumers’ education, training and awareness.

ii) Ineffective food safety related research (food standards and

maximum limits).

iii) Inadequate literacy and education of farmers and FBOs on safe

and hygiene good practices.

iv) Making a research platform within the SAARC countries on food

safety issue.

v) Lack of food safety education curriculum.

vi) Lack of resources for research and education in food safety and

related matters.

2.2 Policy Gaps and Policy Formulation

i) A multidisciplinary, multi-agency and multi-national platform

for policy research and education on food safety need to be

established and strengthened.


5

ii) Inadequate SAARC standards and co-ordination of food controls.

Common standard requirements for food trade to be endorsed

that have to be accepted by the South Asian countries. It helps to

enhance food trade maintaining the food safety standards.

iii) The programs and activities of Food Safety Authorities need to be

extended in a wide spectrum by the countries in harmonizing the

regional and international standards.

iv) Lack of alignment, harmonization and mutual recognition among

SAARC member countries as per WTO and Codex standards.

Policy harmonization and Mutual Recognition Agreement among

the countries aligning with the international food standards need

to be formulated.

2.2 Opportunities for SAARC Cooperation

i) Establish collaboration, cooperation and build trust among the

multidisciplinary/ multi-agency for various food safety issues in

the region.

ii) Development of regional standards and co-ordination of food

controls where appropriate.

iii) Memorandum of Understanding (MoU) and Mutual Recognition

Agreements (MRA) between and among the trading partners for

trade facilitation and enhance trade in the South Asian region.

iv) Share food processing technologies, database and rapid alert

system in the region.

v) Establish a common pool of SAARC funds for conducting

research on food safety issues. Multi-country research projects on

common food safety issues needs to be undertaken.

vi) Regular and frequent organize regional consultation meeting to

sharing of SAARC experiences and come up with certain

recommendation to endorse updated food standards and further

collaboration on the food safety issues.

3. Capacity Building on Safe Food in the Food Value Chain The capacity building at the different levels of the concerned

stakeholders are presented in Table 2.


6

Table 2. Capacity building on safe food in the food value chain

Actors at Various

Level

Gaps Needs

Input dealers. Knowledge gap on

selection and application

of inputs.

Technology training and inputs

identification.

Packaging information to be in

locally understood language in

all the SAARC countries.

Farmers and

producers.

Knowledge gap on

selection and application

of inputs, technology,

safe use of pesticide.

Soil testing and soil and water

health card for all the farmers.

Post-harvest

management technology.

Skills and capacity building

through training and

demonstration on post-harvest

technologies.

Adopting GAP

Extension service

providers

Government/

Private/ NGOs.

Limited knowledge of

producers, extension

agents, technicians on

food safety.

Trainer’s training.

Exposure at SAARC level.

Curriculum and training

module on food safety at

SAARC level.

Local level

aggregator,

primary traders

and wholesalers.

Insufficient knowledge

of storage,

transportation, post-

harvest management,

and food safety.

Capacity building on food

safety in post-harvest

management.

Processors. Availability of

technology mapping

(lack of good practices).

Technology mapping and

sharing at the SAARC level.

Market –

wholesaler,

retailers Exporters.

Unhygienic market place

– lack of sanitation,

improper/absence of

slaughter house.

Training on market

management, waste

management to traders and

concerned authorities.

Awareness of acts and

regulations on environmental

management, including

facilities for labour, good

manufacturing practices.


7

Actors at Various

Level

Gaps Needs

Consumers. Lack of knowledge on

personal hygiene,

understanding of diet,

nutritional value, storage

and cooking, waste

disposal.

Awareness through media,

teaching curriculum in all levels

of schooling, and social

campaign.

Policy makers. Inadequate knowledge

on food safety

management and

regulatory frame work,

lack of coordination with

the stakeholders.

Sensitization, technical

backstopping, awareness, and

lobbing to the policy makers to

formulate policy and legislation

on food safety and related

matters.

Thematic Regional Perspective Paper

Chapter 2

Improving Food Safety in Agriculture and Food

Systems: A Strategic Policy Pathway for 2030

in South Asia

Rudra Bahadur Shrestha1* and Bal Kumari Sharma Khanal2

1Senior Program Specialist, SAARC Agriculture Center, Dhaka, Bangladesh.


2Food Research Officer, .Ministry of Agriculture and Livestock Development,

Singhadurbar, Kathmandu, Nepal. Email: [email protected]


Abstract

Food safety is the enduring and intertwining issue in the world, particularly in

the least developed and developing economies. The concern of food safety is being

increasing rapidly because of its sensitivity on food trade, food security, food

contamination and public health risk. This paper has been prepared to analyse

the scenario, challenges and opportunities of food safety, and recommend policy

measures to improve the food safety in South Asia using secondary data source

and literature review. The assurance of comprehensive food safety is associated

with the complete food chain starts from the use of inputs to the plate; thus,

appropriate and hygiene handling of the agriculture and the food production

process is crucial to ensure safe, healthy, and hygiene intake of foods by the

consumers. Proper dissemination, adoption and utilization of available research-

based technologies, knowledge and information tools could enhance food safety

from the primary production sources to the consumers’ tables. Furthermore, for

the South Asian countries, there is a need of harmonization and modernization

of policies, laws and food standards according to the global food safety standards,

such as Codex, Food and Drug administration (FDA) and European Union

(EU) standard to establish a robust food safety management system.

Keywords: Food safety, food standards, strategic policy, South Asia

1. Introduction

Food safety denotes to the quality of the foods in the food systems

production, distribution, processing and consumption practices of foods

Shrestha & Khanal: Improving Food Safety in Agriculture and Food Systems: A Strategic Policy... South Asia

9

that prevent spread of food borne illness through the contamination and

deterioration of the foods. Change of food habit of people around the

world in this modern era, introduction of several varieties of foods,

globalization of food trade, integration and establishment of novel

scientific technologies in food and agricultural industries have created

both opportunities and challenges to food safety. The food safety laws

and regulations define a clear mandate to the concerned agencies to

prevent and manage food safety issues (WHO, 2013).

The development has direct relationship with the food safety and

health related issues; as the developed economies have strong enough to

enforce its food safety legislations and vice versa. Indeed, food safety is

different than that of food security; as the developed economies more

concerns with the food safetynutrition, diet, hygiene and health

towards shared prosperity, while least developed and developing

economies focus on food securityavailability, accessibility and

utilization of foods for their survival.

In most of the South Asia countriess, limited infrastructural and

institutional facilities for the food safety control management along with

weakly enforced policies and regulations is prevalent. In South Asian

countries, the stakeholders, either don’t have adequate knowledge or,

due to pre-existing challenges, are unable to apply their knowledge

regarding maintaining the food safety in the entire food chain. In

addition, owing to their profit-oriented principles, the stakeholders

display unethical behaviour along with intentional carelessness during

production, processing, handling and selling of food items. Therefore, it

is necessary to develop regional food safety standardization aligning

with the domestic and export requirements of the products to improve

food safety system in the region.

All over the world, access to safe and sufficient amount of quality food

is a most common human necessity. Although food borne illness is a

serious threats to all the people, poor are particularly very vulnerable to

these risks. About 2.2 million people die with food and water borne

disease every year and most of them are children. Food contaminated with

chemicals may be a cause of non-communicable diseases (such as cancer)

and can also affect reproductive and immune system (WHO, 2013).

It is obvious that illness is minimized or controlled by eating safer

foods, which consequently enhance people’s livelihood and country’s

productivity. Safe food meeting international food standards will also


10

help to increase income, trade and tourism. Hence, each countries must

systematically integrate food safety into policies and interventions to

improve nutrition and food security too. Food safety is a crucial

component of Millennium Development Goals to enhance health and

ensure sustainable development (WHO, 2013). Furthermore, the food

safety is more likely associated with Sustainable Development Goals

(SDGs) (FAO, (2015), particularly the SDG-1 (no poverty), SDG-2 (zero

hunger), SDG-3 (good health and well-being), SDG-6 (clean water and

sanitation), SDG-8 (decent work and economic growth), SDG-12

(responsible consumption and production), SDG-15 (climate action) and

SDG-17 (partnership for the goals).

In an entire food chain, integrated, and multi-disciplinary approach

is necessary in order to assure the food safety along with the quality

standard of the foods. Among the different approaches of food safety, in

a preventive approach, food hazard at a source is either controlled or

eliminated adopting the traditional practices called “final quality control

method”; and hence is more effective in reducing the risk of unwanted

health effects than relying on the “quality control of final products”.

Different approaches on food safety measures in recent decades involves

control based on good practices such as Good Agricultural Practices

(GAP), Good Hygiene Practices (GHP), Good Husbandry Practices

(GHP); and more targeted food safety systems are based on Hazard

Analysis of Critical Control Points (HACCP) to risk based approaches

using food safety risk analysis (OIE, 2008).

Good food safety practice is also directed to reduce the food losses

thereby enhancing food security. The Global Food Security Index

(GFSI) deals the basic issues of affordability, availability, and quality and

safety across a set of 113 countries. The index is a dynamic quantitative

and qualitative standard model, constructed from 34 unique indicators,

that measures these drivers of food security across both developing and

developed countries (GFSI, 2020b). Among the South Asian Association

for Regional Cooperation (SAARC) countries (Table 1), Sri Lanka has

highest overall and category ranked score of GFSI and Bangladesh has

the least. All the scores are estimated on a scale of 0-100, where 100 is the

most favourable.


11

Table 1. Global Food Security Index (GFSI) of SAARC countries

Country GFSI

Rank/Score

Category Rank/Score

Affordability Availability Quality and

Safety

Afghanistan NA NA NA NA

Bangladesh 83/53.2 77/60.4 79/54.8 107/30.6

Bhutan NA NA NA NA

India 72/58.9 70/64.2 61/58.4 85/47

Nepal 79/56.4 80/58.5 76/55.4 72/53.7

Maldives NA NA NA NA

Pakistan 78/56.8 74/63.2 75/55.7 93/43.6

Sri Lanka 66/60.8 69/65 54/60 76/52.4

Source: GFSI (2020a)

Note: NA represents not available of the data

This paper therefore, is more emphasized the integration of SAARC

country’s policies and approaches in consistent with regional and global

food safety standards.

2. International Agencies Involved in Food Safety

2.1 Codex Alimentarius Commission (CAC)

CAC was established in 1962 and is a joint FAO/WHO body which

develops international standards that ensure food safety worldwide.

There are 188 member countries and one member organization

(European Union) in CAC. The objectives of the CAC include protection

of the health of consumers and assurance of fair practices in the food

trade (Burlingame & Pineiro, 2007). Codex has developed and introduced

following standards and guidelines in foods.

i) Commodity Standards- 224.

ii) Code of Practices- 54.

iii) Guidelines-79.

iv) Inspection and certification procedures-8.

v) Maximum limits for pesticide residues (218 pesticides, 4300

MRLs), veterinary drug residues (66 drugs), contaminants in food

(17 MRLS), food additive provisions (292 additives), etc.

(CODEX, 2020).


12

2.2 Food and Drug Administration (FDA)

The four major agencies working in food safety regulatory activities, namely:

Food Safety and Inspection Service (FSIS) of the US Department of

Agriculture (USDA), FDA, the Environmental Protection Agency (EPA), and

the National Marine Fisheries Service (NMFS) of the Department of

Commerce. Among them, the FDA is a part of the Department of Health and

Human Services (DHHS) (IOM & NRC,: US, 1998).

During 1970’s, the food safety basically dealt with sanitation,

chemical safety, filth and adulteration and the role of FDA was limited to

production /inspection and court cases. However, food safety and the

working pattern took a major shift in the late 1980s’ and 1990’s as food

borne diseases (FBDs)/illnesses caused by microbiological contamination

emerged as a public health concern and a threat to public confidence in

the food supply. From 1994, HACCP rules were introduced in fish, meat,

and poultry. This in fact led to the beginning of a modern era of food

safety regulations in the US and around the world (FSMA, 2011).

FDA falls under USA Food Safety Policy and Legislations. The USDA

is responsible for the inspection of meat, poultry and egg production

under the meat, poultry, and egg inspection acts. Except for certifying

organic products, FDA is accountable to protect public health and to

assure the safety, quality and security of human and veterinary drugs,

biological products and medical devices. Furthermore, it also ensures the

safety of USA’s food chain, cosmetics and radiation emitting products

(FDA, 2020). FDA has prepared following four Act/ Rules:

The Food Safety Modernization Act (FSMA)- Preventive Control

For Human Food Rule.

FSMA- Preventive Control for Animal Food Rule.

FSMA Final Rule on Foreign Supplier Verification Programs for

Importers of Food for Humans and Animals.

FSMA Final Rule on Produce Safety Standards for the Growing,

Harvesting, Packing, and Holding of Produce for Human

Consumption.

2.3 World Organization for Animal Health (OIE)

The Office International des Epizooties was initially established in 1924,

and since 2003, it was called as the World Organization for Animal

Health (OIE), keeping its historical acronym OIE (OIE, 2020). The OIE


13

was established as a permanent working group on Animal Production on

Food Safety in 2002, it coordinates the food safety activities of the OIE

with CAC to minimize the risks of food-borne risks in human health

associated to hazards from the animals. The OIE develops, adopts and

publish standards on “animal production food safety”. For the

development of science-based standards, the OIE Reference Centres gives

required expertise for food safety (OIE, 2015).

There are 182 members’ countries in OIE so far. The OIE maintains

permanent relations with nearly 75 other international and regional

organisations and has Regional and sub-regional Offices on every

continent (OIE, 2020).

At present, some prioritized activities of OIE are:

Contribution to and implementation of scientifically based

standards and guidelines.

Communicating international animal diseases and Zoonosis

information.

Prevention, control and eradication of animal diseases.

Capacity building of national veterinary services, etc.

2.4 European Commission (EC)

The food safety policy of EC covers food from farm to fork within the EU.

It aims to guarantee safe, nutritious food and animal feeds, high

standards of animal health and welfare and plant protection, as well as

clear notification on the origin, content, labelling and use of food. EC has

formulated integrated food safety policy in EU and manages relations

with the European Food Safety Authority, (EFSA) thus ensuring science-

based risk management (EC, 2020).

As a result of occurrence of a series of food incidents in late 1990s,

attention was drawn to establish general principles and requirements

concerning food and feed law at Union level. Accordingly, the EC

developed an integrated approach to food safety “from farm to fork”,

primarily set out in its “White Paper” on Food Safety. It encompasses all

sectors of the food chain, including feed production, primary production,

food processing, storage, transport and retail sale (EC, 2000).

The EC has 28 member countries involved for the food safety

assurance and each country has its own organization of authorities and

associated agencies. They can formulate slightly different laws from EU

https://www.oie.int/about-us/international-and-regional-organisations/#c6425

https://www.oie.int/about-us/international-and-regional-organisations/#c6425

http://www.efsa.europa.eu/


14

decisions and directives, which may result in different administration

and autonomous implementation of laws in terms of assigning a central

competent agency. Primarily, the member states are responsible for the

implementation, surveillance and control of laws while EU legislation

monitor the performance of the member states by audits and inspection.

2.5 International Food Safety Authorities Network (INFOSAN)

INFOSAN is a joint programme of the FAO and WHO (INFOSAN, 2010).

It is a voluntary global network of food safety authorities and provides a

crucial platform for the rapid exchange of information in the case of food

safety crises. In addition, it intends for sharing data on both routine and

emerging food safety issues. INFOSAN aims to prevent the international

spread of contaminated food and foodborne disease and strengthen food

safety systems globally (WHO, 2013).

INFOSAN works by: i) Promoting the rapid exchange of information

on food safety; ii) Sharing information on important food safety-related

issues of global concern; iii) Promoting partnership and collaboration

between countries; and iv) Helping countries strengthen their capacity to

manage food safety risks.

2.6 World Trade Organization (WTO)

WTO has established as safe trade system by means of Sanitary and

Phytosanitary (SPS) Agreement. This agreement is based on an

assessment of the risks to human, animal or plant life or health according

to the risk assessment techniques established by relevant international

organisations; the standards developed by OIE for animal health and

zoonoses and the CAC for food safety (OIE, 2008).

For the export of agricultural products, as a member of the WTO,

each member country therefore has to comply with the requirements of

the SPS agreement as a basic requirement. Besides this, being a member

or signatory of all three agencies/treaties, namely CAC, IPPC and OIE,

each member country have to work in close coordination with them. It

will progressively help to adopt international standards, guidelines and

recommendations on food safety as the basis for national/ regional

requirements, policies and regulations.


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2.7 International Organization for standardization (ISO)

ISO is an independent non-governmental organization, established in

1947, currently having 164 member countries. It is the world's largest

developer of voluntary international standards, and has published more

than 21,584 International Standards covering almost every industry from

technology, to food safety, to agriculture and healthcare. ISO standards

are also considered instrumental in facilitating international trade (ISO,

2020a). Among these standards, about 1000 are specifically related to

food, and deal with subjects as diverse as agricultural machinery,

logistics, transportation, manufacturing, labelling, packaging and storage

(ISO, 2012).

ISO has also developed a series of standards for food safety

management systems that can be used by any food business operator in

the food supply chain (ISO, 2020b). These standards laid down the

requirements to ensure food safety that the concerned organizations

should meet. The set of standards are:

ISO 22005:2007. Traceability in the feed and food chain General

principles and basic requirements for system design and

implementation.

ISO/TS 22003:2013. Food safety management systems

Requirements for bodies providing audit and certification of food

safety management systems.

ISO/TS 22002-6:2016. Prerequisite programmes on food

safetyPart 6: Feed and animal food production.

ISO/TS 22002-5: 2019. Prerequisite programmes on food

safetyPart 5: Transport and storage.


safetyPart 4: Food packaging manufacturing.


safetyPart 3: Farming.


safetyPart 2: Catering.

ISO/TS 22002-1:2009. Specific prerequisites for food

manufacturing.

ISO 22000:2018. Food safety management systems

Requirements for any organization in the food chain (ISO, 2020b).

http://www.iso.org/iso/home/standards.htm

http://www.iso.org/iso/home/standards.htm

http://www.iso.org/iso/home/store.htm


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2.8 World Health Organization (WHO)

WHO has been working in food safety for more than five decades,

collaborating with intergovernmental organizations (e.g. FAO), all the

responsible stakeholders and partners to ensure food safety throughout

the whole food-chain from Farm to Table. The strategic direction of the

WHO (WHO, 2013) are: i) Science-based decision makingprovide the

science based measures along the entire food-chain to decrease

foodborne health risks. It can be achieved through: providing scientific

basis for decision-making in policy development and risk management;

establishing international standards and recommendations and promote

their implementation and importance in public health; Establish new

approaches to systematically collect, analyze and interpret data and other

information to better guide risk analysis and underpin policy decisions;

and providing a comprehensive framework for determining the burden

of foodborne diseases. ii) Cross-sectoral collaborationImprove

international and national cross-sectoral collaboration, enhance

communication and advocacy. This strategy is supported by promoting

cross-sectoral collaboration and information sharing to optimize the

response to foodborne health risks, including outbreaks; and ensuring

risk communication and health promotion/education in support of

foodborne disease prevention. iii) Leadership and technical assistance

Provide leadership and assist in the development and strengthening of

risk-based, integrated national systems for food safety. This strategy is

back up by: assisting the countries in building and strengthening risk-

based regulatory and institutional frameworks; increasing the countries’

capacity to manage food safety risks in emergency and non-emergency

situations; and assisting the countries in the development and

strengthening of enforcement structures.

WHO works to protect health of consumers (WHO, 2013) through

providing: i) Science based policy guidance; ii) Public health leadership;

iii) Technical assistance and cooperation; iv) Consolidated health-related

data; and v) Normative framework.

Moreover, WHO has also confirmed a food safety as a public health

priority mandate, which committed WHO and its Member States to a

range of multi-sectorial and multi-disciplinary actions to promote food

safety at local, national, and international levels, and outlined some of the

key actions needed to advance food safety (WHO, 2013).


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2.9 The Global Foodborne Infections Network (GFN)

The GFN was established to strengthen national and regional integrated

surveillance, investigation, prevention and control of foodborne and

other enteric infections. The network encourages integrated, laboratory-

based surveillance and fosters inter-sectoral collaboration and

communication among microbiologists and epidemiologists in human

health, veterinary and food-related disciplines (WHO, 2013).

2.10 Joint FAO/WHO Expert Committee on Food Additives (JECFA)

JECFA is an international scientific expert committee jointly administered

by FAO/WHO to evaluate safety of food additives, contaminants,

naturally occurring toxins and veterinary drug residue in food. JECFA

performs risk assessments and provides advice to FAO, WHO, CAC and

member countries of these organizations as an independent scientific

expert committee. It has been meeting since 1956, initially to evaluate the

safety of food additives (JECFA, 2020). For all the countries, due to need

of access to reliable risk assessment of chemicals in food and availability

of limited expertise and resource to perform separate risk assessments on

large number of chemicals, JECFA plays a crucial role in contributing a

reliable and independent source of expert advice, to prepare international

standards to protect the health of all consumers and for ensuring fair

practices in the food trade. JECFA members are prominent scientist from

around the world having recognized scientific excellence.

2.11 South Asian Regional Standards Organization (SARSO)

SARSO is a specialized body of SAARC, was established to strengthen

coordination and cooperation among SAARC member countries for the

standardization and conformity assessment. In addition, it has planned

to set up harmonized standards for the region to promote intra-regional

trade and to have access in the global business. SARSO was established

in August, 2011 and initiated its activity from April, 2014. Its Secretariat

is located at Dhaka, Bangladesh. It also provides information related to

National Standards Bodies of The Member Countries, WTO-TBT enquiry

points, accreditation bodies of the member States (SARSO, 2020).

For the successful food safety assurance, it is necessary to establish collaboration and coordination among the agricultural, animal, public health, food, stakeholders and private sectors having similar aims and responsibilities within each country. In addition, it is essential to perform


18

cross-country collaboration within South Asia region because food safety problem in one country immediately puts other countries at risk if not addressed properly.

Regarding food safety events constituting international public health

emergencies, it is needful to conduct coordination and collaboration

among established networks in the area of food safety and foodborne

zoonoses such as International Food Safety Authorities (INFOSAN), the

Global Early Warning System for Major Diseases, including Zoonoses

(GLEWS) and the network of National International Health regulations

(IHR) Focal Points (WHO, 2013).

3. Five Keys to Safe Food

WHO has developed fives keys to safer food message (Figure 1), which

explains the basic food hygiene principles that individuals from all over

the world should follow to ensure safe food handling practices to prevent

foodborne diseases (WHO, 2006).

Figure 1. Five keys to safer food message

Source: WHO (2006)

i) Keep cleanAlthough most of the micro-organisms do not cause

diseases; soil, water, animals and people are habitat of harmful

microorganism. Hence, it is necessary to clean hands, wiping clothes,

utensils, equipment, cutting boards and food preparation areas to

eliminate risk of FBDs from contact of these microorganisms.

ii) Separate raw and cookedHarmful food poisoning microorganism

present in raw food (e. g., meat, poultry, seafood and raw vegetables)

may transferred to other foods during preparation. Therefore, separate

storage facility, utensils and equipment must be used for raw foods to

avoid contact with other foods.


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iii) Cook thoroughlyAlmost all the pathogenic microorganisms can be

killed by proper cooking. Food cooked at >70°C can be considered as safe

for consumption. However, special attention should be provided for the

meat, seafood, poultry and eggs.

iv) Keep food at safe temperature Growth of microorganism is very

quick if the food held at room temperature. The multiplication of

microorganism is either slowed down or stopped if the food is held at

temperature <5°C or >60°C. However, thermophiles and psychrophiles

still grow above 60°C and below 5°C, respectively.

v) Use safe water and raw materialsNon- potable water and ice used

as a raw materials may be contaminated with harmful microorganism

and chemicals. Toxic chemicals (e. g. aflatoxin) may be found in damaged

and mouldy foods. Hence, clean and sound raw materials should be

selected for the preparation of foods (WHO, 2006).

4. Food Safety Framework

The food safety framework consisting of seven components developed by

the WHO (WHO, 2020) is useful at the national level to eliminate the

food borne disease in a whole food chain (Figure 2).

Figure 2. Strategic framework for strengthening national food control system

Source: WHO (2020)


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4.1 Policy and Legal Framework

For the acquisition of comprehensive food safety system, it is crucial to

formulate, review and update food safety policies, legislations and

standards to include all requirements for food safety measures and

address current emerging issues, and to harmonize food legislations

across various competent authorities in line with international

requirements such as CAC, WTO OIE, Sanitary and Phytosanitary (WTO

SPS) agreement and Technical Barriers to Trade (TBT) measures. Food

safety policies, regulations and standards can be disseminated through

various means, including online tools such as official websites.

4.2 Food Control Management

Food control management can be efficiently run through facilitating the

cross-sectoral coordination and cooperation, sharing of knowledge and

experience, integration of food control services at the national and

subnational levels to achieve common food safety goals.

4.3 Risk-based Food Inspection

Develop implementation mechanism including appropriate inspection

tools and sampling plans for risk-based inspection across the food chain,

which needs adequate resources. A regular monitoring program is

crucial for specific contaminants and residues. Develop guidelines for

food business operators (FBOs) to establish food safety management

systems such as good hygienic practices (GHP), good manufacturing

practices (GMP), good agricultural practices (GAP), hazards analysis and

critical control points (HACCP), traceability, recall, labelling, and food

fraud vulnerability assessment and mitigation plan, and encourage them

to conduct self-audit programs.

4.4 Data to Support Evidence-Based Control Measures

Promote and encourage evidence based decision making. Establish a

national integrated data management system that should maintain

accuracy, reliability, validity, and timeliness of the data. The data has to

be analyzed for risk assessment, set standards, prioritize and participate

in regional and international data sharing, e.g. Codex, global

environment monitoring system (GEMS-food database).


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4.5 National Laboratory System

Well-equipped laboratory facilities should be established and make

access to adequate laboratory services, including reference laboratories

and satellite/mobile laboratory units equipped with reliable rapid test

kits for on-the spot testing. Strengthen the laboratory networks at the

national and sub-national levels by participating in proficiency testing

programs (PT), intra- and inter-laboratory audit programs along with

collaboration with regional reference laboratories to improve efficiency

and cost–effectiveness.

4.6 Preparedness and Response to Food Safety Emergencies

Develop, update and test cross-sectoral preparedness and response plans

for food safety emergencies in line with the One Health approach.

Strengthen capacity to conduct investigation on FBDs outbreaks and food

safety events using the One Health approach.

4.7 Food Safety Communications and Education

Build up the national education program with food safety, its cause and

effects and resolution measures, and tie-up with capacity development

program. The education and capacity building programs should be

supported with well-designed guidance and training manual. Conduct

awareness campaign and necessary programs, sensitization programs on

food safety, and training for promoting food hygiene practices, food

labelling, healthy diets, food allergy prevention, including the “Five keys

for safer food” for the food handlers/street food vendors/ small-medium

enterprises (SMEs) to improve hygiene and food safety practices.

5. Policies and LegislationsFood Safety in South Asia

For the promotion of food safety among all the population groups, the

“Regional Food Safety Strategy for WHO South-East Asia” was prepared

in 2014 to provoke Member States to commence, establish and sustain

multi-sectoral approaches and measures. Some of the member states

namely Maldives, Nepal and Sri Lank have national food safety policy

and other countries are at various stages of progress on the development

of national food safety policy and action plan. In addition, National

Codex Committee (NCC) and national FBDs surveillance systems have

been established and enactment of food safety standards and regulations.

In the past five years, many advancements have been accomplished to


22

enhance Codex, FBDs surveillance and emergency response activities

through implementation of the Regional Strategy (WHO, 2020).

The countries in the world have their own food safety standards and

approaches, while the level and nature of quality standardization and the

requirements may differs by countries. Globally accepted standards are:

i) FDA (Food and Drug Administration) and USDA of USA ii) EU

standards, iii) Codex standards, and iv) Food Standards Australia New

Zealand (FSANZ); and v) ISO standards.

All the member states of the SAARC have established National

Codex Committee with Codex contact point. Some Member States have

established national level INFOSAN with the focal points to enhance

networking on food safety. Most Member States actively participated in

meetings and workshops of INFOSAN.

The SAARC countries such as Afghanistan, Bangladesh, Bhutan,

India, Maldives, Nepal, Pakistan, and Sri Lanka, are being adopting their

own food safety standardization measures to improve the food hygiene

and food safety control system. Some of the SAARC member countries

have recently introduced food safety policy and legislations and some are

in progress. Following are some major policies and legislations to

promote the food safety:

5.1 Policy and Legislation on Food Safety in Afghanistan

Afghanistan Food Safety Act (2016) incorporates food chain approach,

risk analysis and management, responsibilities of authorities and

business operators, traceability, transparency, food controls mechanism,

and generally complies with all obligations of international trade. The

food safety procedures is more focus on the registration of food

businesses, inspection and certification in line with sanitary and

phytosanitory (SPS) measure.

Afghanistan Food Security and Nutrition Agenda (GoA, 2012) is the

major policy for improving food and nutrition security consisting of

strategic priority areas; components and associated activities; fields of

action, and coordination mechanism.

Afghanistan National Health Policy (2016-2020) (MoPH, 2015)

emphasized the consumption of public health including safe ad hygiene

foods, drinking water, clean and sanitation, nutritional security of the

women and children.


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The National Laboratory Policy (2025) (MAIL et al., 2018) is more

focused to strengthen laboratories for effective testing materials to

protect health of human, animal, plant under the One Health approach.

5.2 Policy and Legislation on Food Safety in Bangladesh

The Pesticide Act, 2018; Bangladesh Standards and Testing Institutions

Act 2018; The Bangladesh Food Safety Act 2013; Animal Slaughter And

Meat Quality Control Act, 2010; Fish Feed And Animal Feed Act 2010;

City Corporation Act 2009; Consumers Rights Protection Act 2009;

Bangladesh Pure Food (Amendment) Act 2005; Protection And

Conservation of Fish Act 1995; Fish and Fish Products (Inspection And

Quality Control) Ordinance 1983; Pesticide Ordinance 1971; Bangladesh

Pure Food Rules 1967; Bangladesh Pure Food Ordinance, 1959.

National Agricultural Policy 2018; New Agricultural Extension Policy

2012; National Fisheries Policy 1998; National Food And Nutrition Policy

1997; National Food Policy 1996; National Health Policy 2000; National

Livestock Policy 2007; Product Labeling Policy 2006; National Policy For

Safe Water And Sanitation 1998; Import Policy 2015-2018; Export Policy

2018-2021; National Plan of Action For Nutrition (2008-2015); National

Organic Agriculture Policy 2016.

5.3 Policy and Legislation on Food Safety in Bhutan

The Food & Nutrition Security (FNS) Policy 2012 (RGB, 2012) of Bhutan

deals the food security through four food security dimensions such as

Food Availability, Food Accessibility, Food Utilization and Stability

dimension.

The Food Act of Bhutan 2005 is in the pace of implementation aiming to

protect human health and to regulate and facilitate the import, export

and trade of food in the kingdom of Bhutan. Further, the Bhutan

Standards Act 2010 is also being implemented towards improving food

safety, especially in the area of food standardization.

5.4 Policy and Legislation on Food Safety in India

Food Safety and Standards Act 2006, and Food Safety and

Standards Rules 2011.

Food Safety and Standards Regulation 2011 (Licensing and

Registration of Food Businesses; Food Product Standards and

Food Additives; Prohibition and Restriction on Sales; Packaging


24

and Labelling; Contaminants, Toxins and Residues; Laboratory

and Sampling Analysis) and Food or Health Supplements,

Nutraceuticals, Food for special Dietary uses, Foods for special

medical purpose, Functional foods and Novel foods 2016.

Missions/ Schemes

National Rural Health Mission (2005-06).

Mahatma Gandhi National Rural Employment Guarantee

Scheme (2005-06).

Janani Shishu Suraksha Yojana (JSSK) 2011.

Janani Suraksha Yojana (2006-07).

Midday Meals (2008-09).

Integrated Child Development Services Scheme (2008-09).

National Rural Livelihood Mission (2010-11).

5.5 Policy and Legislation on Food Safety in Maldives

National Food Safety Policy 2017-2026 emphasized the microbial, chemical

and physical hazards at all stages of food production. It focuses on five

pillars of food safety control management: food law; regulation and

standards; inspection services; laboratory services; monitoring, and

training programs.

5.6 Policy and Legislation on Food Safety in Nepal

The Nepal’s Constitution has clear provision of Fundamental

Rights to Food, food sovereignty, and Food Safety.

Food Act 1966 and Food Regulation 1970 (amendment to address

the recent issues in the changing context) aimed to control the

food contamination and unhealthy foods and maintain foods

healthy, hygiene and safe. Furthermore, new “Food Safety and

Quality Act” has been passed by the Nepal’s Cabinet and it is in

the parliament seeking for the approval.

Consumer Protection Act 1998 and Consumer Protection Rules

2000 aiming to protect consumers against the unhealthy and

unhygienic foods.

Nepal Standards (Certification mark) Act 1980 and Nepal

Standards (Certification mark) Rules 1983.


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Plant Protection Act 2007 and Plant Protection Rules 2010.

National Food Safety Policy (2019) is being implemented to

improve and promote the food safety in the country.

5.7 Policy and Legislation on Food Safety in Pakistan

Food Act No.26 of 1980.

Regulations are published in Section 32 of the Food Act 1980.

There are 32 food regulations.

5.8 Policy and Legislation on Food Safety in Sri Lanka

National Nutrition Security Policy 2010.

National Food Safety Policy 2017-2016.

Imports and Exports (Control) Act 1969.

6. Issues, Challenges and Opportunities

6.1 Issues on Food Safety

Technological advancement has enhanced growth of industries and

development of diverse food products and globalization of international

food trade leading to generate longer food chain. Hence, rapid

international spread of any kind of contamination in food from a single

place is possible. For instance, quick spread of feed contaminated with

dioxin from a single source in Belgium in 1999 to every continent within

weeks (WHO, 2020). Technological advancement arises various health

issues, for example: food prepared using advance biotechnology need to

be accessed for the foods safety perspective. Similarly, innovation in

animal husbandry practices has created intensive use of antibiotics and

growth hormones, may develop antimicrobial resistance (AMR) which

have deliberate implications on human health and food safety.

In a global market, other novel food products prepared from food

irradiation, micro-wave technique, Ohmic heating, high pressure

technology, food prepared from hurdle technology and organic food, as

well as from emerging and re-emerging diseases such as E. coli 0157:H7

and viruses, Bovine Spongiform Encephalitis (BSE), bird flu, and foot-

and-mouth disease have created global food safety issues and necessary

to address appropriately.

i) Concerns Over Genetically Modified (GM) Food in Food Safety

GM food is produced and processed using innovative technologies. After

the USA first approved commercial production of GM tomatoes in 1994,


26

there has been an increase in the number of GM crop expansion areas

and GM crops adopting countries (Huang & Peng, 2015). By 2015, about

28 countries have planted GM crops in 179.7 ha. Public debate about

safety of GM food is still enduring since its invention and this has led to

challenges for the rapid development of modern biotechnology. EU,

USA and China still have reservation over GM foods. Although

production of GM food is regulated by very strict procedure in EU, trend

of producing GM food in China and USA expected to continue into the

future (Veeck et al., 2020; Schuler et. al., 2019). Blair & Regenstein (2020),

have given a conclusion about GM foods and is based on the findings of

regulatory agencies/ independent scientists and assessments by scientific

agencies in many countries. According to them, “All approved foods and

feedstuffs that have been derived from Genetically Modified (GM) plants

and fish and from livestock, poultry, and fish fed diets containing GM

food products are safe to eat”. They have also mentioned that public

acceptance of GM foods is limited by people’s level of understanding. In

addition, the WHO has declared that all the GM products on the

international market have passed risk assessments by national authorities

(Huang & Peng, 2015).

ii) Melamine Intoxication in China (2008)

The melamine incidence (2008) was adulteration of infant milk powder

with melamine, occurred in China and was one of the largest intentional

food contamination incidents ever reported in the world. During its

contamination period, it created direct global implications and potential

for huge public health impact. Melamine incidence was first identified by

an unusual high number of cases of infants with kidney stones within a

very short period of time, reports were made to local authorities. The

Chinese government then started the subsequent epidemiologic

investigation along with the involvement of parents and the media for

the national investigation. The government also reinforced market

supervision and product inspection and assisted with compensation

cases for victims. As a follow-up to this event, the Chinese congress

formulated a National Food Safety Law in 2009 (INFOSAN, 2011). Some

food safety incidents are given in Table 2.


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Table 2. Food safety related incidents in the past around the world

Country Food safety incidents Year

Peru About 400,000 illness and 4,000 deaths were

recorded due to eating seafood infected with

Vibrio cholera.

1991

Bangladesh 1,657,381 cases and 2,064 deaths from food

contamination.

1998

Republic of

Korea

7,909 food poisoning cases were reported. 2003

Kenya 317 illness and 125 death were reported due to

consumption of aflatoxin contaminated maize.

2004

China 300,000 infants became ill by melamine

contaminated in infant formula milk.

2008

Germany

and spread

to other 18

countries in

Europe

More than 4,000 cases and 50 died in 16 countries

due to eating fenugreek sprouts infected with

Escherichia coli O104:H4 and was first and largest

O104:H4 outbreak associated with sprouts in

history.

2011

USA 300 cases and 6 deaths from E.coli contamination

in romaine lettuce.

2018

African

countries

1,060 cases and 216 death were occurred due to

consumption from Listeria monocytogenes

contaminated ready-to-eat processed meat (from

Tiger Brand).

2017-2018

Thailand 120,000 food poisoning. Every Year

Source: Prabhakar et al. (2010); Food Safety News (2020); Barakat (2019)

6.2 Challenges on Food Safety

The food safety is encountered by several challenges in the South Asia

region. According to WHO (2020), the challenges in food safety are:

burden of food borne disease; effectiveness of food monitoring at the

national level; food fraud and adulteration; quality food trade; reliable

information system; and coordination and coordination among the

concerned stakeholders. Following are the major challenges:

i) Burden of Foodborne Diseases

Food safety is a major public health concern, hence extensive burden of

FBDs exists if any compromise is done. According to WHO, burden of


28

FBDs is equivalent to that caused by malaria, HIV/AIDS or tuberculosis.

Generally, in a developing countries, one in ten people suffer from the

foodborne illness due to consumption of unsafe food. The burden of

FBDs in the South Asia Region is the second highest among all WHO

regions, accounting for 150 million illnesses, 175000 deaths, and 12

million disability-adjusted life-years (DALYs) in 2010. (WHO, 2020).

ii) Food Monitoring for the Domestic Market

Lack of sufficient financial resources for the development of food safety

testing laboratories facilities, food safety surveillance and monitoring

facilities along with capacity building of human resource in most of the

South Asian countries. Conducting physical examination and basic

laboratory analysis practices are continuous prevailing instead of

following risk based testing.

iii) Food Fraud and Adulteration

Food safety system in the South Asia has been continuously jeopardized

by food fraud and adulteration due to profit making attitude of traders,

thus loosing consumer confidence in a whole food chain. Furthermore,

food fraud and adulteration have been increasing due to ineffective

enforcement and implementation of food safety related laws, legislations

and guidelines.

iv) Assuring the Safety and Quality of Food Export

For the exportable food commodities, South Asian countries exert oneself

due to refusal from importing countries to meet food safety and quality

standards/requirements established by importing countries. Contrarily,

importing countries in South-East Asia do not have adequate import

inspection and testing capacities and resources to ensure the safety and

quality of imported food supplies. Hence, these countries have a double

burden in terms of ensuring safe food for all in real terms (WHO, 2020).

v) Information for Consumers and Training for Food Handlers

In South Asia, tendency of lack of delivering reliable food safety

information through e- or other sources of media is common. Sometimes,

minor food safety incidents leads havoc to public due to misperception of

foods safety although the government makes effort to provide authentic

information (WHO, 2020). Training and food safety awareness are not

effectively implemented to food handlers and street vendors thus leading

to poor hygiene practices. In addition, current educational curriculum

has not focussed on food safety.


29

vi) Cross-Sectoral Communication, Coordination, Collaboration and

Traceability

Countries in a South Asia are failing to address the issue of food safety

due to lack of cross-sectoral communication, collaboration and

coordination among the authorities involved in food safety. Similarly,

absence of traceability in the supply chain due to lack of GMP, GHP,

GAP, and Good Storage Practice (GSP) still exist.

vii) Alignment, Harmonization and Mutual Recognition Agreement

Lack of alignment, harmonization and Mutual Recognition Agreement

(MRA) among SAARC member countries as per WTO, CAC standards,

EU and ISO standards for pesticide residues, mycotoxins, heavy metals,

veterinary drug residues and food additives.

6.3 Opportunities on Improving Food Safety

i) Possibility of development of appropriate infrastructure and

facilities in a national and regional levels.

ii) Private sectors engagement and public-private partnership for

conducting academic/ research/ trainings for skill and capacity

development and foster safe foods.

iii) Establish collaboration, cooperation and build trust among the

multidisciplinary/ multi-agency for various food safety issues in

the region.

iv) Harmonization of national standards according to regional and

international standards along with development of common

regional standards and co-ordination of food control systems of

the countries among the region.

v) Highly assured food safety management system can be

developed by sharing multi-country research projects, food

processing technologies, database and rapid alert system.

vi) To get rid from unethical behaviours of stakeholders, farmers’

organization/ resource centre would be established for training

and motivation on code of conducts.

vii) Food safety management system’s guidelines for HACCP, GMP,

GHP, GHP, etc. can be implemented to ensure food safety from

farm to fork in the region.

viii) Enforce traceability technology and echo-labelling system.


30

ix) Endorse food safety and nutrition in educational curriculum.

x) Memorandum of Understanding (MoU) and Mutual Recognition

Agreements (MRA) can be signed between and among the

trading partners for the facilitation of trade in

importable/exportable food commodities.

xi) A common pool of SAARC funds for conducting research on

food safety issues can be created.

7. Conclusions and Recommendations

7.1 Recommendations

Many countries in South Asia do not have effective monitoring and food

safety surveillance system. It is required to establish coherent links

between all the related stakeholders within the country, with regional

and international food control agencies and the public health system for

achieving synergetic impacts to reduce the foodborne diseases. On the

basis of discussion earlier, following recommendations are derived:

i) Efficient monitoring and surveillanceof food borne disease and

food contamination at the national and regional level.

ii) Establish data management systemsat the regional and the

country levels to make the data available and access to the concerned

stakeholders that can be used for formulation appropriate planning

through modelling and forecasting for the possibility of food borne

disease outbreaks. The data should include on microbial, chemical,

biological and physical hazards by multidisciplinary approach for the

effective implementation of emerging and emergency food safety issues

and challenges.

iii) Organize regular meetings and interactionsof the concerned

authorities and experts on the application of set forth food

standardization and facilitate the regional food trade.

iv) Establish common food safety standards and guidelinesin the

SAARC region to address several food safety issues and reinforce policy

decisions. So that all the SAARC countries harmonize their food safety

standards to the Codex standards that will contribute to ensure food

safety trade in the regional and the international markets.

v) Enhance the awareness and advocacy programs among the

consumer groups, civil societies, and concerned stakeholders.


31

vi) Accredited laboratory systemneed to be established at the egional

level of South Asia. In addition, establish global inventory of laboratory

capacity so that countries can seek support when food safety issues

arises, for example: melamine adulteration in China, Salmonella outbreak

in USA, rejection of Nepalese ginger by Germany for having high levels

of pesticide residue issue, etc.

vii) Capacity building programs could be conducted especially in the

areas of laboratory analysis, accreditation and, training of human

resources and research and development activities.

7.2 Conclusions

In food production and distribution system, process control throughout

the entire food chain is necessary to adapt a good food safety control

management. Scientific risk based assessments/analysis, structured

surveillance and traceability systems should be the basis for designing

national and international standards, legislations and policies. For

expediting and monitoring the fair practice in global /regional food trade

by reducing the risk of hazards, adoption of innovative technology in

South Asia is imperative. Regular consultation and meeting of

developing nations with international food safety control agencies is

another viable option for coordination and collaboration to address food

safety issues. We suggest efficient monitoring and surveillance; establish

data management systems; organize regular meetings and interactions;

establish common food safety standards and guidelines; enhance the

awareness and advocacy programs; accredited laboratory system; and

capacity building to improve food safety in the South Asia region.

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Country Perspective Paper

Chapter 3

Food Safety: Current Status, Challenge, Opportunity

and Policy Perspectives in Afghanistan

Ahmed Faridon Kaker1* and Rudra Bahadur Shrestha2 1Ministry of Agriculture Irrigation and Livestock, Afghanistan.

Email: [email protected] 2SAARC Agriculture Center, Farmgate, Dhaka-1215, Bangladesh.



Abstract

Agriculture is the source of livelihood for 80% of the country's population.

Afghanistan Food Security and Nutrition Agenda (AFSANA) is a

comprehensive framework with a specific goals and targets, strategic priorities,

and fields of action to overcome the interrelated challenges of food and nutrition

safety. The Food Safety Act, enacted in 2016, confirmed the pre-existing

distribution of competences between the Ministry of Public Health (MoPH) and

the Ministry of Agriculture, Irrigation and Livestock (MAIL) and their

cooperation with the Afghan National Standards Agency (ANSA). There is a

provision of the National Food Safety Board (NFSB) as a cooperation mechanism

between the relevant agencies. In addition, due to limited financial and relevant

manpower capabilities, the food safety agendas have lagged behind. Some radical

structural changes are still required to be in sync with global developments.

Codex is one of the important area to be developed in Afghanistan as the country

is a member of Codex Alimentarius in 2005. A National Codex Committee has

formed at the country level but it needs to be functional and training is required

for the officials, scientists, universities and industry officials. The national Codex

structure needs to be updated and developed in a changing global standards.

Keywords: Food safety, food policy, food poverty, food losses

1. Introduction

Food-borne diseases remain one of the most widespread public health

problems in the contemporary world and an important cause of reduced

economic productivity despite remarkable progress in food technologies.

No country is immune. The Centers for Disease Control and Prevention



Kaker & Shrestha: Food Safety: Current Status, Challenge, Opportunity and Policy... Afghanistan

35

in the United States estimates that each year roughly 1 in 6 Americans (or

48 million people) get sick, about 128,000 are hospitalized, and 3,000 die

because of food borne diseases. While the global incidence of food borne

illness is difficult to determine, the WHO estimates food borne and

waterborne diarrheal diseases kill 2.2 million people annually in

developing countries, most of them are children. The incidence of food-

borne illness in Afghanistan is difficult to estimate due to lack of

epidemiological data but it is most certainly fairly widespread. Afghan

citizens are at high risk of bacterial and protozoal diarrhea, hepatitis A,

and typhoid fever from contaminated food and water (Deboyser, 2019).

One indicator of food borne illness is the fact that average life expectancy

is only 61 years for men and 64 for women (MoPH, 2016). Malnutrition

among expectant mothers and their babies caused by insufficient or

innutritious food results in high child mortality and morbidity rates in

Afghanistan. Poor food safety practices are a significant contributing

factor to these problems. Improve in good hygiene practices can reduce

food loss from contamination and spoilage by as much as fifteen percent.

Additionally, food products retain their nutritional value much longer

when produced under safe conditions.

Despite huge reconstruction efforts and significant economic growth

since early 2002, Afghanistan remains one of the poorest countries in the

world. Chronic malnutrition is recognized as the best indicator of a

country’s quality of human capital as it limits national intellectual

potential. The safety food and quality of the diet is a problem in

Afghanistan, while micronutrients intake is fragile. Maternal, infant and

child mortality rates are among the highest in the world. A limited food

supply and lack of access to safe and quality food and clean water,

combined with poor sanitation conditions and unhygienic practices have

been identified as the major underlying causes of malnutrition.

Malnutrition, in all its forms, amounts to an intolerable burden, not only on

national health systems, but on the entire cultural, social and economic fabric

of nations, and is the greatest impediment to the fulfilment of human

potential. Adequate quality food is a human right and good nutrition is

essential to achieve the aims of the Millennium Declaration and the

Sustainable Development Goals (SDGs).

Food safety issue is handling by two main ministries; MoPH has the

responsibility for the control of safety of processed foods, and the

Ministry of Agriculture, Irrigation and Livestock (MAIL) is assigned for


36

the control of safety of raw and fresh animal, plant and agricultural

products, which are semi-processed. The National Food Safety Board

(NFSB) has been established to coordinate the relevant agencies; it is

composed of the representatives of 6 ministries and 8 agencies, and is

chaired by the Minister of MoPH with Deputy Minister of MAIL as vice-

chair. A National Codex Committee has formed at the national level but

it needs to be functional and capacity building is required for the

officials, scientific experts, and university and industry officials.

2. Country Situation on Food Safety

The National Medicine and Health Regulator Authority (NMHRA) under

MoPH, controls the laboratory quality control function under the

Authority; Environment Health Directorate under which the Food Safety

Department functions and controls the imported and domestically

produced foods.

The Plant Protection and Quarantine Directorate (PPQD) of MAIL

have activities in 34 provinces of Afghanistan, and inspecting the plant

diseases, quarantine issues and agro chemicals (pesticides, insecticides,

etc.). This department is the focal point for IPPC. There is Plant

Protection Act and regulation in Afghanistan. The plant protection

procedure works on inspection of plant products, export and import,

compulsive licensing, issuing of SPS Certificate. The Central Plant

Protection Laboratory provides the analytical capacity to PPQD. It is well

equipped and resourced and performs a wide range of tests.

The Animal Health Directorate (AHD) is responsible for control of

animal diseases, disease diagnostic matters, quarantine, epidemiology

and public health and the focal point for OIE. Furthermore, the AHD is

responsible for implementing the Animal Health Act, the Animal and

Animal product export and import regulation and procedure, inspection

and licensing, issuing of SPS certificate, announcing of emergency

situation, labelling, and system of notification, quarantine services,

traceability and punishment.

The Animal Health Directorate is responsible for the veterinary

inspection activities in matters of animal health, for the safety and

hygiene of food of animal origin, and for overseeing the processing or

disposal of animal by-products. It carries out border and inland

inspections. Within the AHD, the Veterinary Public Health and

Quarantine Department is responsible for veterinary public health. The


37

Central Veterinary Diagnostic and Research Laboratory provides the

analytical capacity for veterinary public health services in MAIL.

In accordance with food safety and animal health acts and agreement

between MAIL and MoPH, the Codex Contact Point (CCP) and SPS

Enquiry Point (SPS ENP) established in AMIL. It is located in Planning

and Policy Department of MAIL that sharing the Codex Standards and

SPS notifications with National Codex Committee Member and SPS

National Working Group. ANSA has responsibility of standard

development, it has 13 different committees, and one of them is food

safety committee which is working on development and review of food

standards, more than 70 standards are developed and adopted with

Codex. Beside the MoPH and MAIL, the Municipality’ Environmental

Health Directorates and Consumers Supporting Directorate of MoCI also

checking the food markets and stores, they are also destroying the sub-

standard and expire foods time to time. Due to lack of inspectors and

monitors in MoPH, hygienic situations is weak at foods markets,

particularly at wholesale markets, retail markets and street restaurants.

Most of street food venders are selling unhealthily foods, and most of

the low income people consume these foods due to its low cost. The

MoPH is responsible to inspection and control of such food selling

practices and increase awareness program. However, there is no regular

awareness program for food traders, consumers, producers, retailers,

restaurants, street food venders, confectionaries, bakeries and food

storekeepers. A number of families who come to health centers for

treatment and food processing classes, they are learning about nutrition

and food hygiene through the Health Centers of MoPH and Home

Economic Directorate of the of the MAIL.

The government should take initiatives on two fronts; namely,

strategic and regulatory. The strategic elements include harmonization of

national standards with those of Codex, up-gradation of laboratory

infrastructure, creating awareness about food safety, capacity building of

food producers, manufacturers, street vendors, food caterers,

institutional / hospital canteens and restaurants with the use of Manuals

on GAPs, GHP and other FSMS guidance documents.

3. Statistics Related to the Food Safety

Statistics play a prominent role in risk assessment analysis of food safety;

there is no regular specific database system in this regards in the country.

The MAIL & MoPH have a data management information system where


38

all statistics related to nutrition, diseases treatment and prevention data

are available in Health Management Information System (HMIS), while

data related to food borne diseases are not accessible.

The issued SPS Certificates for Plants, Animal and Animal exports

products are recoding in Animal Health and Plant Protection and

Quarantine Departments of MAIL, however, it is not linked with MAIL

Management Information System (MIS). All food items (export and

import) which is importing and exporting from official borders of the

country are recording in database of custom of Ministry of Finance MoF.

The licenses are issuing for food business operators by Ministry of

Commerce and Industry (MoCI). MoPH are registering the FBO who are

processing the food and getting the health certificate for their

manufactures. The major problem in food sector is importing of foods

from illegal borders as smuggling, which are not recoded in the

concerned ministries and most of these are unhealthy and substandard.

4. Best Practices on Food Safety Measures

Usage of experienced good practices play prominent role in

improvement of food safety and food trade. Based on developments of

science, the food standards are restricting day-by-day due to better safety

by developed countries, food producers and manufacturers are striving

to meet global food standards.

Many projects are funded by ADB, USAID, EU, WB, FAO, WHO and

supported to the food producers and traders to maintain the

standardization of products in the value chain. Some food producers

companies obtained ISO, FDA, HCCAP, GHP, GMP and GAP standards

for value addition of their products; therefore, they have found access to

global markets. According to National Information Statistic

Administration (NISA) report, the Afghan traders exported 64 kinds of

agricultural and livestock products at value 875 million US$ to more than

20 countries in the world in 2018. The government seeks rapid

development of extractives, which could support export growth to

significantly substitute aid inflows, with total potential exports reaching

around US$ 4 billion by 2024.

Afghanistan had membership of all SPS three sister’s organizations

(OIE, IPPC and Codex Alimentarius) earlier the WTO accession;

therefore, Afghanistan has aligned its food safety measures (Acts,

Regulations and Procedures) with SPS measures. In 2019, the Plant


39

Health Quarantines Stations issued more than 12000 SPS certificates,

Animal Health Quarantine issued animal health 1000 certificates, and

MoCI issued more than 300 quality certificates for plants and animal and

animal products. Afghanistan has severe problem with its neighboring

countries due to long borders, usually, sub- standards and unsafe foods

imported to Afghanistan from illegal borders.

Good Agricultural Practices (GAPs) on vegetable and fruits products

has been developed by the support of FAO, which should be used in

South Asian Association for Regional Cooperation (SAARC) Member

Countries and beyond. As the National Standards Body, co-operates with

the ISO and supports the food control system through the development

of standards, establishing Certification Bodies for implementation of

standards and regulations (FAO, 2017; ITC, 2019). However, currently,

no Accreditation system in Afghanistan, ANSA has developed about 71

standards including for food labeling.

Afghanistan has signed several technical cooperation Protocols and

MoU signed in the fields of Agriculture, Livestock and Health as

regionally and globally with USA, UK, and Turkey, SAARC, Central

Asia, EU and Russian countries.

CVDRL is delivering laboratory service for veterinary and veterinary

public health in MAIL. This lab is equipped with advanced technology

calibration (HPLC, AAS, GC mass, Sequencer machine), and it is in the

process of getting ISO 9001. The MoPH and ANSA food safety lab also

equipped with advanced technology, but all lab staffs need to enhance

the capacity building. Similarly, the Plant Products Quality Lab of MoCI

is certifying fruits and dry fruits quality. This lab is accredited by the

GMS American, the ISO 9001 (quality management) and the IEC 17025.

5. Food Safety, Food Losses and Poverty Alleviation

Food waste is one of the major factor of food insecurity. A good food

storage practices have an important role in preventing food waste. There

is need of cold storage and good quality package facilities for the

products in the country. Processing of food and changing the form of

fruits (drying and processing) is the best manner to reduce of food losses

and poverty alleviation. Some companies such as Tak Dana, Tabasoom,

Ababil, Barg-e-Sabz, Faizi etc. are processing the fruits, dried fruits and

vegetables with required standards and exporting the processed

products in global markets.


40

The government has paid more attention to wastages control,

particularly to postharvest losses, and put them in its top priorities. For

better management of losses, up to now the government has built 3063 on

farm zero cold storage (for vegetable and fruits) each with the capacity

10-60 tonnes for the farmers at the village level, 74 cold storages for

farmers’ cooperative with the capacity of 10-500 tonnes and 27

commercial cold storages with capacity 100-1200 tonnes. Meanwhile,

private sectors also established some commercial cold storage with

capacity 500-2000 tonnes.

Beside the above cold storages, the government is in designing

process of 8 cold storages (each with the capacity of 5000 tonnes) and 12

cold storages each one with the capacity of 500 tonnes is in procurement

phase. The 50 Strategic Grain Reserve (SGR), 8 Rub Hall and 4 Silos are

provided for storing of grain and cereal in the country. These stored

foods are distributing on emergency and crisis situation, particularly for

famine and calamity victims of remote areas people, especially at the

arduous roads and heavy snowing in the winter season. The most of food

traders have not access to standards food stores, therefore they loss their

products. For better safety of meat and processed meat, 5 slaughter

houses have built in the 4 provinces of Afghanistan including Kabul;

these slaughter houses are not operationalized due to low capacity. There

are some chicken slaughter houses in country which established by

private sector and poultry farmers.

Different techniques of food processing is another excellent method

for extending the shelf life and preventing of wastage of food products.

In this connection, MAIL has established 4 large scale vegetable and

fruits processing centers in 4 provinces. A good number of small scale

processing centers have established for women in recent 4 years.

Meanwhile, the Home Economic Directorate under MAIL trains women

on food processing (drying of vegetable and fruits, making of jam, pickle,

sauce and tomato paste etc.) yearly.

A total of 82 milk collection centers established in Afghanistan

supported by MAIL/FAO project and private companies. Meanwhile, 24

milk processing centers are producing dairy products under Afghanistan

Dairy Producers Association across the country; 5 of which are

established by MAIL/FAO with the capacity (5,000-10,000 liter milk/24

hours), the MAIL has established of one UHT milk processing

manufacture with the capacity 5,000 milk/hour in Kabul, this plant will

be exploited at the end of year 2,000 (MAIL, 2019).


41

Grape is one of the famous and best productions in Afghanistan,

which is producing in all provinces of the country. The AMIL has

established 1,353 grape natural drying houses. To prevent waste of

vegetable and animal products, the Animal and Vegetable Health

Departments provides various services for the treatment and prevention

of animal and vegetable diseases throughout the country.

6. Youth and Women to Promote Food and Nutrition Security

Food and nutrition insecurity is a severe and widespread problem in

Afghanistan. According to the FAO/IPC assessment in 2019, it is

estimated that a total of 10.23 million people (33% of the total population)

were in severe acute food insecurity and require urgent humanitarian

action. These include around 7.79 million people in a crisis situation (IPC

Phase 3) and 2.44 million people in an emergency situation (IPC Phase 4).

Around 10.37 million people were also in a stressed situation (IPC Phase

2) and require livelihood support. Moreover, there are also severe

deficiencies in terms of diversity and quality of the diets, leading to

insufficient protein and micronutrient consumption.

The role of women and their contribution to family welfare, food and

nutrition security cannot be overrated. They produce and harvest food

crops, manage livestock, prepare meals, generate family income from

household products, collect water and fire wood, ensure household

sanitation, collect provisions from nature such as wild foods and medical

plants, care for family health and wellbeing and educate their children on

health and nutrition issues.

A result and manifestation of the critical state of food insecurity is

widespread malnutrition, which is further aggravated by a poor health,

sanitation and caring environment. Demographic health survey 2018

showed that 36% of Afghan children fewer than five years of age suffer

from chronic under nutrition, and deficiencies of essential micronutrients

affect up to over 90% of the population (MoPH, 2016). It has been found

that under nutrition in early childhood can never be made up later. It

affects the physical and mental capacity of the people throughout their

lifetime, and depresses economic growth of the country by 3% per year. MAIL has designed strategies and programs aimed at strengthening

the role of women and enabling them to fulfill their role in catering for

food security and nutrition of their family members. The strategic

measures of MAIL in this field include:


42

Promoting home based food production, processing, storage and

conservation and suitable technologies for women.

Support to women’s agricultural enterprises and establishing and

managing women’s cooperatives and associations.

Extension services for women (agriculture, home gardening,

livestock keeping, household food security, nutrition, food

processing).

Increasing female staff in MAIL, particularly home economics

directorate and DAILs female staff to provide agriculture

extension services for women.

Nutrition education and health and nutrition information, such

as booklets, campaigns etc.

Precondition and key strategic measure for actions in all of these

fields is an expansion and upgrading of women’s extension services.

Considering the developed strategies in MAIL (MAIL, 2018) and MoPH

over the last four years, there have been significant efforts have done for

women and young support and promotion:

Setting up of 4,467 large 5,415 small green house.

Establishment of 22,944 small poultry farms.

Construction of 10 small scale vegetables and fruits processing

centers and expanded 119,064 hectare new fruits gardens.

Establishment of 128,906 kitchen gardening.

212,822 families awarded on utilization, consumption foods by

MAIL (Home Economy Directorate).

During the last 3 years, the MoPH has trained to 9670 health workers

in 34 provinces. In addition, nutrition services have provided to 1,086,800

breastfeeding mothers. For better improving of mothers’ health status,

foods items (flour, bean, salt cooking oil and iron tablets) have been

distributed to 226,932 mothers, and folic acid tablets distributed to 1.6

million young girls in schools (MoPH, 2016). In order to improve the

nourishment of mothers and babies, the MoPH hired one nutritionist in

every Basic Health Facility Center.

7. Identify Gaps in Food Safety Measures

Actually, there are many gaps in food safety in the SAARC Member

Countries that should be addressed in designing, implementing and

maintaining food safety measures in the region, these gaps are as follows:


43

Low capacity of food safety staff, lack of food safety experts, and

research programs.

Unavailability of accredited lab and not observing the mandatory

standards required for foods.

Weak inspection of food production, processing, storages,

imports and exports.

Incomplete food safety database.

Not performing of risk analysis survey.

Lack of permanent finance source.

8. Policies and Practices to Promote Food Safety

According to the Afghanistan Food Safety Act (2016) the food safety

system is administrating and implementing by the Ministry of Public

Health (MOPH) and Ministry of Agriculture, Irrigation and Livestock

(MAIL). The Act comprises the general principles of food safety (food

chain approach, risk analysis, responsibilities of authorities and business

operators, traceability, transparency), lays down appropriate

mechanisms for food controls (including inspections), risk management

measures (including emergency measures and recalls), and generally

complies with all obligations of international trade.

The food regulation introduces a (long overdue) licensing system for

food business operators. It covers a number of important subjects not

hitherto regulated, such as food labeling, additives, etc. A few additions

would however be welcome, such as microbiological criteria,

contaminants (in particular Mycotoxins and heavy metals), food contact

materials, and genetically modified food.

The Food Safety Procedures deal with the registration of food

businesses, inspection and certification. It’s worth mentioning the above

mentioned legal documents prepared in lined with SPS measure.

Afghanistan Food Security and Nutrition Agenda (GoA, 2012)

contains a policy statement by the government, reaffirming its

determination to address the multiple determinants of hunger and

malnutrition in a coordinated pathway. It is a comprehensive framework

with a specific goal and targets, strategic priorities and fields of action,

and coordination mechanism to overcome the interrelated challenges of

food and nutrition insecurity.


44

Afghanistan National Health Policy (2016-2020) (MoPH, 2015) has

been developed, emphasized on control of quality of imported foods.

This policy also concentrates the consumer advocacy about food safety

and the promotion of food safety and consumption of safe food,

promotion of safe drinking water, sanitation and hygiene. Afghanistan

has also policy for fortification of foods to improve the micro-nutrient

deficiency of its consumers, particularly focused to women and children;

and to reduce consumption of foods that are high in fat, salt and sugar.

The National Laboratory Policy (2025) (MAIL et al., 2018) has been

formulated to strengthen laboratories related to human, animal, plant

health care under the One Health approach. It emphasized to ensure the

development of a sustainable system of laboratory services in line with

international standards and able to meet the need of the people.

9. Challenges and Opportunities on Food Safety

There are a number of issues and serious challenges in food safety that

have adversely affected to the people and the socio-economic condition

in Afghanistan. The major issues and challenges are:

Unavailability of food safety authority that could facilitate the

assurance of quality standard of the foods.

Weak coordination between region codex committees and

concerned stakeholders.

Lack of food safety staffs and limited capacity to handle the food

safety issues in line with international standards.

Unavoidability of codex sub committees, lack of capacity on

codex, lack of lab equipment in Quarantine Stations.

Lack of food safety awareness programs that need to be enhanced

with necessary appropriate program activities including training,

campaign, workshops, etc.

Unawareness of FBO from national & International Standard.

Lack of policies, strategy, resources and program activities for

promoting SPS and Codex.

Import of unsafe and substandard foods from illegal borders.

No regular database for food borne diseases.

Lack of research in food safety.


45

10. Recommendations

Towards safety foodsbetter life. Food safety is associated with using

inputs, food production process, handling, processing, storage,

wholesaling and retailing of the foods the food should not harm to the

health and life of the people. The following recommendations are made

to improve food safety:

i) Development and implantation of appropriate policies including

acts, rules and regulations, directives, ordinances, and

implementation mechanism in compliance with international

agreements and conventions.

ii) Capacity building programs related to risk assessments, handling

of the laboratories and food safety measures.

iii) Supporting of food safety research, education, extension and

development programs.

iv) Strengthening of inspections, accreditation and certification

systems of foods either domestically produced or imported

products.

v) Develop food safety laboratory capacity at the central and

provincial level, and strongly implement for export and import of

the products.

11. Conclusions and Way Forward

The food safety status in Afghanistan is not in good condition. A number

of issues on food safety need to be addressed to pave the safe and healthy

life. The food safety could be improved through:

i) Assessment of food safety problems, weakness and

opportunities and development of a strategy and action plan;

ii) Strengthen the capacities of food laboratories and accreditation.

iii) Establish regional food safety network, and stabilizing of food

born disease statistics.

iv) Sharing information on scientific data, technology and risk

analysis.

v) Implement comprehensive awareness program for all food

producers, processors, traders and consumers.

vi) Alignment and harmonization of national standards of member

countries with Codex standards.


46

vii) Participation in international and Asian countries regional codex

committees.

viii) Endorse the SAARC Member Countries GAPs and enhance

regional trade.

ix) Establish food safety research traceability and harmonization.

References

Deboyser, P. (2019). Strengthening the Food Safety Control System of Afghanistan

Mission Report. Ministry of Public Health, Kabul, Afghanistan.

FAO. (2017). The Food Control System in Afghanistan with Reference to Food

Fortification. Food and Agriculture Organization, Regional Office for Asia and

the Pacific, Thailand.

GoA. (2012). Afghanistan Food Security and Nutrition Agenda, Policy Statement in

Afghanistan. Government of Afghanistan, Kabul, Afghanistan.

ITC. (2019). Establishing an Effective National Food Control System. International

Trade Center Organization.

MAIL, MoPH & WHO. (2018). Afghanistan Laboratory Policy. Ministry of

Agriculture, Irrigation and Livestock; Ministry of Public and Health; and World

Health Organization, Kabul, Afghanistan.

MAIL. (2018). Comprehensive Agriculture Development National Priority Program

2019-2023. Ministry of Agriculture, Irrigation and livestock, Afghanistan.

MAIL. (2019). Food and Nutrition Security Strategy 2015-2019. Ministry of

Agriculture Irrigation and livestock, Afghanistan.

MoPH. (2015). National Health Policy 2016– 2020. Ministry of Public Health,

Afghanistan, Kabul.

MoPH. (2016). Afghanistan Demographic and Health Survey. Ministry of Public

Health, Afghanistan.


Chapter 4


and Policy Perspectives in Bangladesh

Abu Shahid Saleh Md. Zubery Bangladesh Food Safety Authority


Abstract

Ensuring food and nutrition for all is of prime importance to the Government of

the People`s Republic of Bangladesh as a part of constitutional obligation (Art.

15. A and 18. 1); the food has to be safe since without safe food it is quite

impossible to achieve the level of nutrition. Although significant economic

development in Bangladesh has been achieved in the past decade, approximately

a quarter of the inhabitants are incapable to avail safe and nutritious food. Food

safety is considered as a prerequisite to guarantee overall food security. Access to

safe food ensures the maximum utilization of available food and thereby sustains

food and nutrition security. Workforces of youth and women population are

significantly contributory factor to food safety from food production to plate. The

major gaps in food safety measures are, but not limited to-inadequacies in data,

governance and infrastructure, value-chain management, laboratory capacity

and training, inconsistencies in standards, regulations, and certification. A

number of policies and practices to promote food safety management system in

Bangladesh are in place. In spite of that, there is room of scope for

institutionalization of food safety in Bangladesh aiming at strengthening

regulatory and legal framework, multi-agency coordination and collaboration,

national and international networking, continuous education and learning

opportunities. Bangladesh Food Safety Authority (BFSA) is committed to

materialize its vision and mission for ensuring safe and nutritious food to

protect health and life.

Keywords: Food, safety management, capacity building, strategy

1. Introduction

The growing concern on food safety has been recognized as a national

priority by the highest-level policymakers in Bangladesh; “Food Safety”

has been included in the 7th Five Year Plan, and in the Country


48

Investment Plan on agriculture, food security and nutrition. This has

successfully resulted in the formulation of the Food Safety Act, 2013 (Act

No.43 of 2013) notified in the Official Gazette on April 28, 2016. The

Bangladesh Food Safety Authority (BFSA) has been established on 2

February 2015 as the central regulatory body that would co-ordinate food

safety activities in Bangladesh. The FAO Project “Institutionalization of

Food Safety in Bangladesh” (GCP/BGD/054/USA) funded by USAID is

providing technical support to BFSA. To strengthen national food control

system and to meet the provisions of the Food Safety Act 2013, Rules,

Regulations and existing Food Inspection System should be modernized

and strengthened.

The existing food safety control mechanism needs to be modernized

and effective by an effective inspection process in most coordinated way.

Traditional food control programs are usually based on regulatory

requirements, which are not always focused on risk or food safety

control. The traditional program focuses on finding non-compliances and

have limited or no flexibility built into the inspection systems.

Prioritization of hazards and their associated risks are not taken into

account, and all premises are usually inspected with the same frequency

with a reliance on end product analysis. This type of inspection focuses

on structure, equipment, facilities, state of repair, general cleanliness and

on the availability of resources, irrespective of risk. The need for

regulatory food authorities to move to a risk-based system of inspection

based on science is the key to success. The trend in recent years is to

move from this traditional approach for food inspection to a risk-based

system that of-course efforts on areas of highest risk so as to making the

maximum use of scarce resources. The benefits of such a system will be

explained towards the areas of the highest risk, greater protection of

public health and securing compliance with food law. Hazard

identification, risk assessment, control at critical points are not being

considered as components of the traditional inspection process. In the

modern food control services, there is now an emphasis on supporting

businesses through the concept of ‘TEA’ (Training, Education and

Advice) as well as enforcement, where it is deemed necessary. At the end

of an inspection, the officials should ensure a full and accurate report and

the record of the inspection completion, followed by updating of the

premises record file. The food agency should have an internal monitoring

system capable of assessing whether or not its planned program of

inspection is being maintained; codes of practice/guidelines are being

Zubery: Food Safety: Current Status, Challenge, Opportunity and Policy Perspectives in Bangladesh

49

adhered to; there is consistency in the risk rating of premises and that

enforcement action is consistent with agreed policy.

The Government of Bangladesh has firm intent to establish Food

Safety Management System (FSMS) aligned with the requirement of the

international bench mark and establishment of an effective food control

system in the country. In order to do so, the authority is on the process to

appoint 103 Food Safety Officials for effective control and management

of food safety system in Bangladesh.

Safe food means “a food that is pure and hygienic for public health

according to its intended use and utility” (Ref. Section 2.17, Food Safety

Act 2013). Food safety in food production may be achieved by natural or

organic farming and even in agriculture by using chemicals with a

recommended dose and practices. The main consideration is that the total

process in the food chain should not involve any practice or material that

directly or indirectly results hazards to consumers’ health. Unsafe foods

could be defined as: i) foods that contain microbes in sufficient quantities

leading to short term illness or death; ii) foods which contain substances

possessing potential long term health problems (such as pesticide/

fungicide/antimicrobial residues or bovine spongiform encephalopathy);

iii) foods that have unknown, but suspected health consequences (such as

genetically modified or irradiated); and iv) foods that contain ingredients

responsible for development and onset of the chronic diseases such as

diabetes, cancer, and cardiovascular heart disease ( Kinsey, 2003).

Ensuring safe food is recognized as a primary concern for the

Government of the People’s Republic of Bangladesh with a view to

reducing the burden of food-borne diseases on public health. It has been

observed by the World Food Program that although significant economic

development in Bangladesh has been achieved in the past decade,

approximately a quarter of the inhabitants are incapable to avail safe and

nutritious food.

Food safety is considered as a prerequisite to guarantee overall food

security in Bangladesh. Under the FAO Country Programming

Framework (2014-2018), improving the market linkages, value addition,

and quality and safety of the food system has been marked as one of the

priority areas of FAO in Bangladesh.


50


Bangladesh is one of the most densely populated countries in the world,

63.37% of the population live in rural areas and are engaged in farming

or related activities. The vast majority of children now attend primary

school and gender parity has been achieved in primary and secondary

education with a committed Government policy for girls' education.

While Bangladesh has made considerable progress in improving the

health status of its population, rates of malnutrition in the country are

among the highest in the world and nutritional and food hygiene and

sanitation standards are poor. Communicable diseases continue to be

prevalent and non-communicable diseases show a rising trend. There are

still unacceptably high levels of maternal and neonatal mortality.

Bangladesh faces numerous food safety challenges throughout the

entire food chain. Until recently, lack of an up-to-date legal framework

(food safety structure, rules, regulations, code of practices, guidelines,

and standard operating procedures) led to the absence of an effective,

coordinated, equitable and well-managed system for food control.

Insufficiency of private sector (industry and third party inspection/

certification bodies) involvement leading to unethical business practices,

lack of a common integrated approach towards animal and human health

that includes food safety elements, and inadequate food safety awareness

among food producers, food handlers and consumers contribute to these

challenges. This places an enormous burden on the nation’s public health

system, significantly reducing the productivity of the population; thus

hampering livelihoods and increasing the vulnerability of women and

children to food insecurity and malnutrition. Moreover, the lack of a

national food control system reduces the confidence of importing

countries in Bangladesh food exports and leads to the imposition of trade

barriers that limit market access. As a result, Bangladesh’s position in

regional and international food trade is compromised and this greatly

affects the Government of the People’s Republic of Bangladesh’s stated

aim of becoming a middle-income country by 2021, when the country

celebrates its 50th year of Independence.

Ensuring the safety of the food supply is now high on the national

political agenda in Bangladesh. The consequences of producing and

marketing unsafe food can be devastating in terms of impacts on human

health, economic losses and political reputations. As Bangladesh moves

closer to food self-sufficiency and as the rapid development of the

agricultural sector continues, the government has placed special


51

emphasis on safe food production and the safety of the food chain for

protecting consumer health. Food safety is a shared responsibility and

over 480 government agencies, both at central, regional and local level,

are engaged in preventing food adulteration and contamination, setting

food standards and enforcing food regulations. Coordinating the efforts

of all of these agencies and developing a transparent and accountable

national food safety control programme is now a priority.

In 2015, the Government of the People’s Republic of Bangladesh took

a bold decision to further protect its citizens by establishing a single

national agency for food safety. Dedicated to consumer protection, the

Bangladesh Food Safety Authority (BFSA) has been tasked with the

modernization of the nation’s food control services, currently divided

across a multiplicity of departments and agencies. In coordinating the

work of all services involved, it is expected to improve the effectiveness,

accountability of the food control system and protection of public health.

The BFSA will set modern high standards of food safety. Food businesses

will benefit, as they will be able to demonstrate that, in meeting high

standards, it is overseen by an independent, science based regulator. This

will underpin confidence at home and abroad in the reputation of

Bangladesh as a nation dedicated to caring for people by producing safe,

and high quality food.

3. Food Safety in Bangladesh

For the establishment of an efficient and effective authority and for

regulating, through coordination, the activities relating to food

production, import, processing, stock, supply, marketing and sales, so as

to ensure the rights toward access to safe food through appropriate

application of scientific process, upon repealing and re-enacting the

existing laws connected thereto and to ensure the rights toward access to

safe food for the protection of human health and life, Bangladesh

government enacted the Food Safety Act 2013 by the gazette notification.

This Act came into force on 1st February, 2015 and Bangladesh Food

Safety Authority was established on 2nd February, 2015 under this act.

The authority started its journey with one Chairman, four Members, one

Secretary and 5 Directors. Within the legal provision of the Food Safety

Act, 2013, two high level committee- National Food Safety Advisory

Council and Central Food Safety Management Coordination Committee

are in place to support at policy level and implementation level of food


52

safety, respectively. Currently BFSA has one Chairman, 4 Members, 5

Directors, 2 Deputy Secretary, 4 Executive Magistrates and 40 temporary

support staffs.

3.1 Ministries and Departments Related to Food Safety

Multiplicity in Ministries and allied Departments related to food control

system as well as variability and duplicity in their Acts, Rules and

Regulations are making the food control system difficult and the Food

Business Operators confused simultaneously. Related Ministries and

departments include: Ministry of Food; Ministry of Agriculture; Ministry

of Fisheries and Livestock; Ministry of Science and Technology; Ministry

of commerce; Ministry of Forest, Environment and Climate Change;

Ministry of Industry; Ministry of Health and Family Welfare; Ministry of

Public Administration; Ministry of Law, Justice and Parliamentary Affair;

Ministry of Information Communication and Technology; Ministry of

Home Affairs; Ministry of Local Government, Rural Development and

Cooperatives; Department of Environment; Dhaka WASA; Department

of Agriculture Extension; Department of agricultural marketing;

Department of Fisheries; Department of Livestock; Directorate of

National Consumers` Right Protection; Bangladesh Standards and

Testing Institution; Bangladesh Small and Cottage Industries

Corporation (BSCIC); Bangladesh Accreditation Board; Department of

Public Health Nutrition; Institute of Epidemiological Disease Control and

Research; Directorate General of Health Services; Bangladesh Atomic

Energy Commission; Directorate General of Food; Department of Public

health engineering; Pure Food Courts.

3.2 Different Laws Related to Food Safety

The Pesticide Act 2018, Bangladesh Standards and Testing Institutions

Act 2018, The Bangladesh Food Safety Act 2013, Animal Slaughter And

Meat Quality Control Act 2010, Fish Feed And Animal Feed Act 2010,

City Corporation Act 2009, Consumers Rights Protection Act 2009,

Bangladesh Pure Food (Amendment) Act 2005, Protection and

Conservation of Fish Act 1995, BSTI Ordinance 1985, Fish and Fish

Products (Inspection And Quality Control) Ordinance 1983, Pesticide

Ordinance 1971, Bangladesh Pure Food Rules 1967, Cantonments Pure

Food Act 1966, Agricultural Pest Ordinance 1962, Bangladesh Pure Food

Ordinance 1959.


53

3.3 Different Policies Related to Food Safety

National Agricultural Policy 2018, New Agricultural Extension Policy

2012, National Fisheries Policy 1998, National Food And Nutrition Policy

1997, National Food Policy 1996, National Health Policy 2000, National

Livestock Policy 2007, Product Labeling Policy 2006, National Policy for

Safe Water and Sanitation 1998, Import Policy 2015-2018, Export Policy

2018-2021, National Plan of Action for Nutrition (2008-2015), and

National Organic Agriculture Policy 2016. Since its establishment in the

year 2015, the BFSA initiated activities to implement the Food Safety Act,

2013. The activities are mainly focused on legal framework, awareness

building, training and advocacy program, coordination among food

business operators, regulatory agencies, food testing laboratory, risk-

based inspection.

3.4 Food Safety Rules and Regulations under Food Safety Act 2013

Food Safety (Food Seizure and Administrative Procedures) Rules,

2019.

Food Safety (Sampling, Testing and Analysis) Regulations 2017.

Food Safety (Use of Food Additives) Regulations 2017.

Food Safety (Chemical Contaminants, Toxins and Harmful

Residues) Regulations 2017.

Food Safety (Technical Committee) Rules 2017.

Food Safety (Labelling of Pre-packaged Food) Regulation 2017.

BFSA Staff Recruitment Regulations 2018.

Food Safety (Food Hygiene) Regulation 2018.

Food Safety (Financial activity) Rules, 2019.

Food Safety (Food Contact Materials) Regulations, 2019.

3.5 Strategy and Other Tools of BFSA

Development of organizational Structure (TO&E) for BFSA.

BFSA Five Years Strategic Plan 2017-21 for the National Food

Control Regulatory Program.

Framework Agreement for cooperation on food control between

the BFSA and Food Control Agencies. (7 MoU singed already).

Regulatory gap analysis and recommendation for crop sectors

(fruits and vegetables).


54

Directory of Food testing laboratories in Bangladesh.

Food safety documentary.

5 keys to safer food animated video.

Animated video on meat hygiene.

Food safety leaflets, banner, festoons.

3.6 Draft Strategies, Regulations and Code of Practices

Communication Strategy for BFSA of 2018-21.

COP for Food Safety (Labelling of Pre-packaged Food).

Food Safety (Obligation of Food Business Operator) Regulation

2018.

Bangladesh National Food Safety Training Strategy for BFSA.

Regulatory gap analysis and recommendation for poultry and

livestock.

3.7 Training / Workshop / Advocacy Program of BFSA

In order to have advanced knowledge and skills on food safety and

related issues, more than 1800 food inspectors are being trained so far. At

this outset, several workshops are also conducted during the past for

implementation of food safety act across the nation. The trainings and

workshops carried out were: Training for Food Business Operators on

HACCP; FSPCA Preventive Controls for Human Food; Basic Food

Hygiene, HACCP and Inspection System for the Food Safety Inspectors

(FSIs) and different stakeholders with technical support from University

of Tennessee; Risk Based Food Inspection System for the designated

Food safety Inspectors; ISO/IEC 17021, ISO/TS 22003 for Bangladesh

Accreditation Board (BAB); Food Safety Management system; Hygiene

and Sanitation for FBO; FSMS Lead Auditing Skills Training and trained

in abroad (India) to build capacity of BAB for accreditation; Laboratory

Food Testing Conclave; Lead auditor training program on Global Gap

and Bangladesh GAP; Good Hygienic Practices (GHP) in Poultry

Slaughter House; Safe livestock fattening, food safety, nutrition and

economic benefit; Implementation and Application of Food Safety Act,

2013 for the executive magistrate; Good Hygiene practice and food safety

for restaurants; Wet market training for farmers and traders/food

vendors; Codex process; Achieving Leadership in Food business: SPS


55

and TBT; safe street vending; safe water for urban slum dwellers; role of

media ensuring food safety in entire value chain; use of chemicals for

seasonal fruits ripening; Harmonization of Bangladesh’s Food Safety

Standards with Codex Standards and other international best practices;

and Food safety and safe livestock production.

3.8 Divisional / District Level Food Safety Awareness Program

Food safety awareness program held in all divisional cities and almost all

old districts. More than 4200 people attended those awareness programs.

Along with those programs, online, social media and through TV media,

food safety awareness program is ongoing activity.

3.9 Food Safety Zone

Recently, the BFSA took a pilot program to check, and inspect in Dhaka

Metropolitan areas. This was followed by grading of the restaurants on

the basis of hygiene level by a predesigned hygiene checklist in six areas;

namely Motijheel, Gulisthan, Dilkusha, Topkhana, Fokirapul and Paltan.

The grading criteria of restaurants were as follows: A+: green, score

≥90%, excellent; A: blue, score 80 - 89%, good; B: yellow, score 60-79%,

average; and C: orange, ≤ 60%, risky. The BFSA successfully completed

this program and had been awarded grades to approximately 57

restaurants. Out of those, 18 restaurants were awarded as A+, and rest of

the them received A grade. Nevertheless, it is continuous program and

currently being implemented in other parts of the Dhaka city i.e.

Gulshan, Dhanmondi.

3.10 Other Activities of BFSA

Designation of 729 sanitary inspectors as food safety inspectors from

DGHS, City corporations Municipalities and Directorate of Food.

Designation of 10 reputed laboratory as food testing laboratory.

Piloting safe street food program in Dhaka city corporation area

through distribution of three street food cart to selected

beneficiaries.

Celebration of National Food Safety Day 2018 and 2019.

Supply of two mobile laboratory van for quick food testing in the

markets is on the process under the USAID fund of FAO Project.


56

Recalling unsafe food products, mitigation of misconception of

about food adulteration and proper interventions / enforcement

activities are in regular practice.

Initiatives for harmonization of food standards.

3.11 Food Safety Activities of NGOs

Bangladesh Safe Agro Food Efforts (BSAFE) FoundationBangladesh

Safe Agro Food Efforts (BSAFE) Foundation is working for creating food

safety awareness and demand for safe food. BSAFE Foundation is a not-for-

profit organization promoting safe and nutritious food for human welfare in

Bangladesh.

Bangladesh Food Safety Network (BFSN)The founding member organizations of Bangladesh Food Safety Network (BFSN) include CAB (Consumer Association of Bangladesh), UBINIG (Policy Research for Development Alternative), Shisuk, BSAFE Foundation and Hunger Free World. The overall objective of the organization is to work on food safety issues and public concerns to explore the potential of forming a Food Safety Advocacy and Awareness Network in Bangladesh.

Several local and international organizations for example, Alcumus Bangladesh, SGS, Aja, Union certifications, BSTI and many others are working for food GMP, HACCP, GaqP, BRC, ISO FSMS 22000, FSSC 22000. In food safety BSTI works for ISO 22000, food safety management system. Only large companies are willing to get that certification with particular view to meet the exporting countries and buyers demand.

4. Best practices on Food Safety Measures

According to Food Safety Act 2013, best practices on food safety are: Good Agricultural Practices (GAP), Good Aqua-cultural Practices (GAqP), Good Manufacturing Practices (GMP), Good Hygienic Practices (GHP) during food production, processing, preparation and marking of safe and healthy foods, Hazard Analysis, Food Safety Emergency Response, Residual Control System and Food Safety Auditing System and practice of relevant subjects which exist in the approved guidance or directives issued for carrying out food business to ensure the compliance of the standards and obligations prescribed by the existing laws.

Global best practices: global GAP, Codex food safety standards and guidelines, IPPC standards and guidelines, Office International des Epizooties (OIE-World organization for Animal Health), ISO FSMS, HACCP, Codex food hygiene.


57


Food security means availability of the food, accessible to food and then

there should have proper utilization of food. So, food has to be safe for

proper utilization in our body. Again, Zero hunger means working

together to ensure everyone has access to the safe, healthy and

nutritious food they need. It triggers the right for all people to have

access to safe and nutritious food in sufficient quantity. Access to safe

food is a basic individual right.

Most of the food loss and waste happened due to food safety issues;

e.g. absence of good manufacturing practices, inadequate sanitation

control program, unhygienic handling of food, lack of proper storage and

unsafe distribution and serving. All the above-mentioned factors are

considered as major impediments for achieving food security in any

country. It is noteworthy to mention that food should not be consumed if

it is contaminated and detrimental to health.

As a result of globalization, food is being produced by producer of

one country and thereafter passed through different steps of value chain

and finally consumed by people of other country. Therefore, food safety

is becomes a global issue. Any tiny food safety issue could become

international subject very easily and affect consumer’s health and

thereafter easily disrupts the trade. Food safety is the key role player for

global food business. It directly relates to nutrition, health and

sustainable development.

6. Youth and Women to Promote Food and Nutrition Security

Youth represent a good number of the population and constitutes an

outstanding portion of workforce in any country. Ideally youth are more

prone to work in a sector, where they can earn money for short period of

time. Providing training and support to the youth could be the excellent

choice to promote food and nutrition security in food production,

processing, distribution and business operations through self-

employment and income generation program.

Women are crucial in the translation of the products of a vibrant

agriculture sector into food and nutritional security for their households.

They are often the farmers who cultivate food crops and produce

commercial crops alongside the men in their households as a source of

income. When women have an income, substantial evidence indicates

that the income is more likely to be spent on food and children’s needs.


58

Women are generally responsible for food selection and preparation and

for the care and feeding of children. Women are the key to food security

for their households (Quisumbing et al., 1995). In rural areas, the

availability and use of time by women is also a key factor in the

availability of water for good hygiene, firewood collection, and frequent

feeding of small children. Thus, they have very good role to promote

food and nutrition security.

7. Gaps in Food Safety Measures in Bangladesh

The major gaps in food safety measures are, but not limited to-

inadequacies in data, governance and infrastructure, value-chain

engagement, laboratory capacity and training, Inconsistencies in

standards, regulations, and certification, inequities and inefficiencies.

7.1 Inadequacies in Data

In order to establish proper food safety systems, both the policy and

operational levels of food safety measures, at the national level, require a

solid foundation of epidemiological data. Data include the prevalence of

various food borne pathogens in and across food value-chains, the

incidence and distribution of food borne illness within communities, as

well as the routes of transmission and risk exposure within populations.

For example, in Bangladesh, general people assume that all the processed

foods are adulterated with unapproved and over dosages of food

additives. In reality, the government does not have accurate data on this

important subject. However, without these estimates, it is impossible for

governments and private sector to measure the impact of implementing

food safety programs across the food value-chains.

7.2 Inadequacies in Governance and Infrastructure

Governance refers to how decisions are made, and the actions carried out

in support of stated goals (Mireles, 2010). In this regard, it is evident that

the country lacks a systematic way to control food safety hazards. Even if

governments have adapted international practices into national plans,

there is a consistent insufficient infrastructure for chemical and

microbiological testing as well as little resources for routine monitoring

and/or enforcement, e.g., properly trained inspectors. This lack of

infrastructure extends into the private sector as well, in terms of both

market and physical structure.


59

7.3 Inadequacies in Value-Chain and Laboratory Capacity

Food safety is not the responsibility of a single stakeholder, but is a

partnership among all value-chain actors. Assurance of Food safety

should be considered as a concerted action that needs cooperation among

the government, enterprises, customers, and civil societies. The primary

role of the government, in regards to food safety, is to verify that the

private sector is implementing appropriate food safety management

systems. The government did not develop such solid guidelines, metrics,

recommendations, and innovative ideas to guide the private sectors.

Further, sustainability of food safety programs is highly influenced

by human and institutional capacity within public and private sector

entities. Depending upon the situation, technical capacity is often

minimal within the country, particularly in regards to food safety testing

laboratories. This capacity includes laboratories with the appropriate

equipment to test for biological and chemical hazards, trained and

competent laboratory personnel, availability of and access to reagents,

test kits, and laboratory consumables, etc. Building research capacity in

government agencies, universities, and the private sector will enable

countries to develop the necessary science-based data and information.

7.4 Inconsistencies in Standards, Regulations, and Certification

Inconsistencies of standards, regulations and certifications are highly

observed in Bangladesh. For example, vertical standards of Pure Food

standards and BSTI standards are different in many cases and this is

creating confusion to the consumers as well as the food business

operators. In addition, BFSA’s horizontal food safety standards are also

not harmonized with all other standards as well. In global perspective,

Bangladesh is a signatory of WTO’s sanitary and phytosanitary

standards (SPS) and Technical Barrier to Trade (TBT) agreement, in many

cases earlier that things were not considered, while drafting and

developing food standards.

The certification systems have loads of inconsistence as well. There

are number of food safety certifications system in Bangladesh, including

British Retailers Consortium (BRC), Safe Quality Standard (SQF), ISO

22000, FSSC 22k. These standards are basically required by exporting

foods or their products and it may differ depending upon the nature of

export item or destination country where it is being exported.


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7.5 Inequity

Food safety measures creates inequity to poor and middle-income groups

in Bangladesh and people from this group also give less priority to safe

food while food affordability does not translate into affordability to safe

food. The food brand those they declare as food safety certified, claim to

have high level of prices and that the poor and middle-income group is

unable to afford. For example, poor and middle-income group cannot

buy food commodities from super shops and reputed chain business,

where they declare they maintain food safety and traceability.

7.6 Inefficiencies

Overlap, misconceptions, inadequate or misplaced controls, lack of data for

informed decision-making, etc. all lead to many food sectors around the

world failing to achieve maximum productivity, and ultimately wasting or

misusing resources. Bangladesh is also facing such issues predominantly.

For example, due to complex food control systems and lack of data,

Bangladesh recent food testing report made a big debate and chaos that

made the food business in real trouble.


Bangladesh has taken a number of policies and practices to promote food

safety management system. These are:

i. BFSA’s five years strategic plan.

ii. Roadmap plan of activity for five years strategic plan.

iii. National Food safety training strategy.

iv. Food safety leaflets, banner, festoons disseminated.

v. Food safety best practices videos developed and disseminated

through internet, TV media and social media.

vi. MoU signed with seven food control agencies and more MoUs

with others are underway.

vii. Rally and seminars in all old districts, metropolitan cities and

Dhaka city as well.

viii. Public notification on food safety Act, Rules, Regulations and

food safety myths debunked.


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9. Issues, Challenges and Opportunities of Food Safety

9.1 Issues on Food Safety

Technical knowledge by the inspectors; therefore, training is

needed.

Field staff, this includes inspectors and permanent staff.

However, BFSA is actively recruiting and has a plan for

strengthening staff numbers in the near future.

Equipment and appliances for sampling and testing by

inspectors.

Lead trainers to sustain the food safety knowledge and culture.

Training infrastructure and capacity, need a formal monitoring

programs for training effectiveness.

Strong inter-agency coordination and collaboration: often

difficult and complex, e.g. challenges in agreement on which

agencies need to report to BFSA; power dynamics on how the

regulations and authority to be applied to each agency.

Close monitoring and linking between learnings and practices

during food inspection.

Lack of lab-capacity and inconsistency in lab-test reports.


Multi-agency complexity (BFSA, BSTI, Ministry of Health,

Ministry of Food, Directorate of National Consumers` Right

Protection, DAE, DLS, DoF, City Corporation etc.).

Lack of coordination and collaboration between agencies in terms

of Food Safety Enforcement and regulatory control systems.

Limited lab-capacity and inconsistency in lab-test reports.

Traditional food habit and practices in non-formal food sectors.

Lack of authentic data on food supply chain and consumption.

Gaps in existing Acts, Rules, and Regulations related to food

safety.

Lack of skilled manpower and research on food safety issues.

9.3 Opportunities on Food Safety

Bangladesh consumers have great concern about food safety and

consumer demand is increasing for safe food owing to growing

consumer awareness coupled with health consciousness.


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The food industry is investing in implementing food safety.

Political support for food safety by the government (GOB).

Support for CODEX by GOB.

Increasing public engagement.

Education and Learning: with government support, Bangladesh

Agriculture University has developed an undergraduate program

for Food Safety Management.

Collaboration with international development agencies.

Capacity development with FAO, USAID, USDA, KSU, JICA.

Food Safety Awareness and Country based desire.

Use of media to deliver correct message on food safety.

10. Recommendation for Improving Food Safety

Population growth with the concurring food demand is a major problem

in Bangladesh. The situation has been worsening due to the use of

polluted waters for food processing, lack of knowledge on the dietary

intake of essential and contaminant elements, and finally the scarcity in

knowledge on health and hygiene. In addition, lack of countrywide data

base of risk assessment and this is creating confusion to the consumers.

An efficient food safety regulatory framework is therefore of the essence

to ensure the supply of safe foods to the consumers in a country.

Following are the recommendations on this regard:

Food consumption survey and food safety risk assessment.

Develop and implement food safety risk communication SOP.

Develop laboratory capacity including man, machine, methods

and materials.

Promote accreditation system for laboratory and certification

bodies.

Develop policy to designate area of food safety control for all

food control agencies.

Develop strategy to initiate course curriculum on food safety

management in educational institutions.

Develop action plan to implement food safety training strategy.

Disseminate food safety awareness materials in easy

understandable local language through media.


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Identification of major Food safety myths and debunk through

proper channel.

Adoption and assessment of best practices in food value chain.

Regional cooperation for knowledge sharing, research and

development on food safety issues.


An effective food safety regulatory framework is imperative to ensure

safe food for consumers in a country. Hopefully BFSA as a central

regulatory organization is in place for ensuring Food Safety in

Bangladesh. To make the organization more effective and authoritative in

the sense of having total independent regulatory power as well as

accountability should lie directly either to the Head of the Government or

the State. Obviously, Food Safety Act, 2013 requires some necessary

amendment to commensurate with the needful in order to make BFSA a

center of excellence.

Way-ForwardThere are a number of things which are needed, some of

which are already in hand. But the first thing to do is to recognize that

the problem has at least three different dimensions – which would

characterize as the “production practices”, the “fraud”, and the “food

handling.”

Production PracticesWith regard to production practices, the way

forward is to educate farmers in using agro-chemicals and to move

towards less toxic alternatives. This should start from the major fruit and

vegetable producing areas, such as Rajshahi or Jashore.

FraudAdulteration and unethical practices are the major impediments

on the road of food safety. Inspection and prosecution are a key element

in consumer protection. Use of unapproved and over dosages of chemical

is not ever a safe practice even if it makes foods attractive for longer

times. People practicing such step should have fear of the consequences,

if they are caught. Here, transparency is vital. Labelling and packaging

for traceability are important to maintain the integrity of the food chain.

Food HandlingContamination occurs from use of unclean water, or other

unsanitary practices, the inability to maintain a cold chain, cross

contamination between different food products. Again, education is part of

the solution along with investment in food handling infrastructure (cold

chain, processing, packaging, market infrastructure). If people want safer


64

food, they may have to pay more for it. Paying more is not a guarantee of

safety in itself. And for many in Bangladesh, paying more is not an option.

What to do? Several government departments have a role to play in

consumer protection, whether by educating the producers to produce safer

food, by testing samples, by prosecuting cases where unsafe food is being

sold. The Bangladesh Food Safety Authority incorporated in the 2013 Act is

a major step in the right direction, to help coordinate consumer protection

activities across the food control system. FAO is providing technical

assistance to the Bangladesh Food Safety Authority for institutionalization of

food safety in Bangladesh. This requires the political will of the government

to support the authority in its infancy, and the commitment to devote

sufficient public resources to make it operational successfully.

References

Kinsey, J. (2003). Will Food Safety Jeopardize Food Security? Paper prepared for

presentation at IAAE 25th International Conference of Agricultural

Economists, Durban, South Africa, 16 22 August 2003, Applied Economics

Department, University of Minnesota, Twin Cities.

Quisumbing, A. R., Lynn, R. B., Hilary, S. F., Lawrence H., and Peña, C. (1995).

Women: The Key to Food Security. Food Policy Statement 21. Washing-ton,

DC: International Food Policy Research Institute.


Chapter 5


and Policy Perspectives in Bhutan

Gyem Bidha

Deputy Chief Regulatory and Quarantine Officer

Bhutan Agriculture and Food Regulatory Authority

Ministry of Agriculture and Forests, Thimphu, Bhutan


Abstract

Food safety has become a national priority worldwide due to increasing number

of food borne illness and deaths associated with food contamination. The Global

Food Safety scenario is evolving in Bhutan with development of new

technologies, emerging pathogens and new food hazards, change in the food

consumption pattern and increased international trade of food. Bhutan is an

import driven economy which relies heavily on imported food to meet its

consumer nutritional needs. Rapid urbanization is leading to increased domestic

food demand, particularly for processed food and meat which cannot be met by

local production. Bhutan like any other developing economy faces enormous

difficulties with inadequate infrastructure and resources, lack of well-equipped

laboratories and highly skilled people in the areas of standards, certification and

testing, making implementation of food safety measures in the country

challenging. The gaps and challenges in the food safety system have been

identified in this report and practical recommendations provided for addressing

them. Bhutan has gone a step forward for food safety by introducing a relatively

new concept of Food Safety Culture learning from the Australian experience. It

is also one of the few countries to pilot the food safety indicator development to

evaluate the effectiveness of its food safety programs and activities to understand

where it stands in terms of food safety. We have recommended five important

way-forwards: targeted investment and funding in food safety; implement a

robust food import control system; capacity building of Conformity Assessment

Bodies; development of food safety indicators; and roll out of food safety culture.

Keywords: Food safety, safety measures, capacity building



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1. Introduction

People irrespective of age, gender, religion, cultural and income require

safe food to lead a healthy life. Food safety is necessary for achieving

food and nutritional security. The statement “Food if not safe is not Food” is

one of the most widely used slogan for creating awareness on food safety

by many FAO/WHO member countries today including Bhutan.

Codex defines Food Safety as the assurance that food will not cause

harm to the consumer when it is prepared and /or eaten according to its

intended use. As per WHO estimation, every year, almost one out of ten

people fall ill, 33 million of healthy life lost and 420,000 deaths are caused

by foodborne diseases (FBD) of which children account for one third of

deaths. Much of the burden of food-borne disease is associated with fresh

animal-source food and vegetables. Detection and elimination of this

food-borne risk is complex and challenging especially as internal

connectivity of food markets increases, supply chain lengthens and

number of actors in the food system grows (FAO, 2017). WHO notes that

majority of the FBDs and deaths are preventable and food safety is a

public heath priority (WHO, 2016).

2. Food Safety and Sustainable Development Goals

Food safety is directly or indirectly linked to achieving many of the

United Nations Sustainable Development Goals (SDGs) especially those

on ending poverty and hunger (SDG-1 and SDG-2) and promoting good

health and wellbeing (SDG-3) (Jaffee et al., 2019). The SDG-6 (Clean

Water and Sanitation) is also directly related to food safety because lack

of clean water increases the risk of food being unsafe. Further,

injudicious use of chemicals in food production can pollute water sources

and infectious FBDs can be transmitted via water. The SDG-17

(Partnership for the goals) is also important for food safety. Since without

the involvement of all the actors in the food chain, achieving food safety

is next to impossible which is why partnership among all stakeholders

that has a stake in food safety is important for realizing food safety.

The world bank report also rightly notes that unsafe food undermine

food and nutritional security, human development, the broader food

economy and international trade. The Safe Food Imperatives argue that

much burden of unsafe food can be avoided through practical and often

low-cost behavior and infrastructure at different points along food value

chain, including in the traditional food production and distribution

Bidha: Food Safety: Current Status, Challenge, Opportunity and Policy Perspectives in Bhutan

67

channels (Jaffee et al., 2019). The food safety in many developing countries

receive less policy attention and only modest investment to manage risk. In

such countries because of scarcity of data and thematic leadership, food

safety tends to gain importance only during crises such as outbreak of food

borne disease, food scandals, trade bans and widespread consignment

rejection because of non-compliance to standards (Jaffee et al., 2019).

3. Evolving Food Safety Scenario in Bhutan

Bhutan is a landlocked country bordering China in the North and India

in the South and has a population of 735,553 (NSB, 2017). According to

National Statistics Bureau (NSB), 30.9% of the Bhutanese population

reside in urban areas, while 69.1% in the rural areas. Bhutan follows a

cautious policy of development based on the principles of Gross National

Happiness (GNH). The four pillars of GNH are: i) Good Governance; ii)

Sustainable Socio-economic Development; iii) Preservation and

Promotion of Culture; and iv) Environmental Conservation. The

Constitution of Bhutan mandates that a minimum of 60% of the country’s

total area of 38,394 square kilometers must remain forested at all times.

The Bhutanese economy is predominantly agrarian-based relying

largely on traditional subsistence oriented mixed farming system that

integrate cropping, livestock rearing, and use of forest products (NSB,

2011). Bhutan’s rugged topography, geography, and climatic features

also make it prone to climate related disasters such as floods, landslides,

glacial lake outburst, drought and earthquakes (Dizon et. al., 2019),

which may impact food safety. This World Bank report notes that

Bhutan’s economy is expanding and there is rapid urbanization (rural–

urban migration). Further, there is increase in domestic food demands

and shifts towards more perishable and processed food. More than half

of the food expenditures of households are on food items imported into

the country. Imported fish accounts for 91.6%, tea and coffee 90.1% and

cooking oil 89.9%. Export of meat and livestock products are almost non-

existent and meat production cannot keep pace with the rising demand

for meat and meat products (Dizon et. al., 2019).

4. Food Safety Situation in Bhutan

4.1 Food Safety Legal Structure and Institutional Set up

The Bhutan Agriculture and Food Regulatory Authority (BAFRA) under

the Ministry of Agriculture and Forests (MoAF) is the agency responsible


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for the administration of National Food Safety and Bio-security in the

Country. The implementation of bio-security and food safety measures in

Bhutan is administered by BAFRA focusing mainly on food safety, the

health and life of plants and animals, including biodiversity and pest

management. BAFRA also administers laboratory services and the

inspectorate system (BAFRA, 2017). BAFRA was initially established as

an agency responsible for plant and animal bio-security called the

Quality Control Regulatory Services in August 2000. It was then renamed

in 2003 as BAFRA with the added mandate of Food safety. BAFRA was

also designated as the National Competent Authority to implement Bio-

safety (GMOs/LMOs) regulations since 2005 (BAFRA, 2017).

Bhutan has adopted integrated approach to bio-security and food

safety, taking a “One Health Approach” by bringing together regulatory

agencies implementing animal and plant bio-security, and food quality

and safety measures under a single agency through establishment of

BAFRA under MoAF (FAO&RGOB, 2019). The food safety and quality

requirements are governed by various laws in the country such as:

Food Act of Bhutan 2005.

Livestock Act of Bhutan 2001.

Bhutan Biosafety Act 2015.

Pesticide Act of Bhutan 2000.

Seed Act of Bhutan 2000.

Plant Quarantine Act of Bhutan 1993.

Further, BAFRA is the national contact point for Codex

Alimentations Commission (CAC) and the International Plant Protection

Convention (IPPC). It also serves as the National Enquiry Point for WTO-

SPS measures and functions as the emergency contact point for

International Network of Food Safety Authorities (INFOSAN). All

regulatory measures related to animal and plant bio-security, food quality

and safety are developed to the extent possible following the standards and

guidelines of the three international standard setting bodies.

The main legislation governing the food safety activities in the

country is the Food Act of Bhutan 2005. As per the Food Act, the highest

decision making body for food quality and safety in the country is the

National Food Quality and Safety Commission (NFQSC) chaired by the

Minister of Agriculture and Forests, and the highest technical review


69

body for food quality and safety is the National Codex Committee

chaired by the Secretary of MoAF. BAFRA enforces bio-security and food

safety regulatory measures through its network of 1 head office, 1

National Food Testing Laboratory, 20 District offices and 6 major official

entry point offices such as Gelephu, Nanglam, Paro, Phuentsholing,

Samtse and Samdrup Jongkhar (Figure 1). Each district of BAFRA office

houses at least one plant, one livestock and one food inspector. There are

small unit of satellite laboratory at some of the entry point offices for

implementing animal and plant quarantine measures. These laboratories

conduct limited screening tests of foods for formalin, pesticide residues

and milk adulterants using rapid test kits.

Figure 1. BAFRA institutional Set Up Source: BAFRA (2017)

4.2 National Food Testing Laboratory

The National Food Testing Laboratory (NFTL) is located at Yusipang,

which is 15 km from Thimphu city. The NFTL was established in the year

2005 to carry out mandatory analytical and diagnostic tests as per the

requirements of the legal framework in the area of microbiology and

chemical discipline. Thereafter, tests related to biotechnology and


70

genetically modified organisms (GMOs) were included keeping pace

with the changing times. However, testing scope is limited to processed

fruits and vegetable products, cereal and cereal products, milk and dairy

products, oils and fats, tea and beverages, honey and water etc. Simple

tests are carried out for the presence of soluble solids, acidity, moisture

content, ash and acid insoluble ash, fat and protein content, pH levels

and presence of heavy metals like lead, cadmium and zinc.

NFTL was accredited to ISO/IEC 17025 in 2012 and with the

accreditation; it is now accredited for 33 parameters in the chemical

discipline, 16 parameters in the biological discipline including 4 in the

GMO discipline. NFTL also carries out routine analysis of test parameters

which are not accredited such as Mycotoxins detection by HPLC

technique, pesticides detection by GCMS technique and veterinary drug

residue by using ELISA technique. Some major equipment available at

the NFTL includes:

i. Gas Chromatograph Mass Spectrometer for detection of pesticide

residues in fruits and vegetables.

ii. High Performance Liquid Chromatography for detection of

aflatoxins in chili powder and milk.

iii. Atomic Absorption Spectrometer for detection of heavy metals in

water.

iv. Real Time PCR machine used to detect presence of GMO content

in food and feed.

The NFTL has collaboration with the Export Inspection Council of

India and with few laboratories in Thailand on test parameters beyond

the scope of NFTL.

4.3 Mandatory Food Standards and Guidelines

While voluntary food standards play an important role, the mandatory

standards developed by BAFRA through the NCC and NFQSC

establishes minimum safety and quality requirements which are the

foundation for the National food control. Bhutan has developed limited

foods standards and guidelines through the NCC and NFQSC, which are

harmonized with the standards and guidelines set by Codex

Alimentarius Commissions (CAC). The existing food standards and

guidelines of Bhutan is presented in Box 1.


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Box 1. Existing Food Standards and Guidelines Of Bhutan

Criteria for Good Hygienic and Manufacturing Practices for Licensing of

Food Business.

Food Handlers’ Training Manual for Food Processing Units.

Food Handler Training Manual 2008.

Food Safety Licensing of Food Businesses.

Minimum Standard Requirement for Street Food Vendors.

Minimum Standards for Establishment and Operation of Temporary

Food Stalls.

Training Manual for Meat Handlers.

Training Manual for Street Food Vendors.

Bhutan Standard for Street Vended Foods.

Bhutan standard for Red Rice.

Bhutan Standard for Natural Mineral Water.

Bhutan Standard for Maize and Maize Products.

Bhutan Standard for Home Processed Pickles.

General Standard for Food Hygiene.

Bhutan Standard for Dried Fish and Dried Salted Fish.

Bhutan Standard for Chilli and Chilli Powder.

Bhutan GAP Standard.

Bhutan Standard for Animal Meat and Co-products.

Bhutan Mandatory Standard for Pesticide Residues in Food

Bhutan Mandatory Standard for Veterinary Drug Residues in Food.

Bhutan Mandatory Standard for Food Additives.

Bhutan Mandatory Standard for Mycotoxins in Food.

Bhutan Mandatory Standard for Heavy Metals in Food.

Bhutan Mandatory Standard for Honey.

Bhutan Mandatory Standard for Milk.

Bhutan Mandatory Standard for Butter.

Bhutan Mandatory Standard for Local cheese.

Bhutan Mandatory Standard for Table Eggs.

Bhutan Mandatory Standard for General Fruit Juices and Nectars.

Bhutan Mandatory Standard for Labelling of Pre-packaged Foods.

For other food commodities, Bhutan follows or refers to CAC Standards.

4.4 The Bhutan Standard Bureau

The Bhutan Standards Bureau (BSB) is the national standard setting body

with its mandates covering four areas of standards, metrology,

certification and accreditation. BSB also serves as the nodal agency to

represent Bhutan in the International Organization for Standardization

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BAFRA-GHP-GMP-Criteria-_March_2014.pdf



http://www.bafra.gov.bt/wp-content/uploads/2015/06/BAFRA_FoodHandlerTraningManual-2008-English.pdf

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BAFRA_Licensing-Process-Flow_2014.pdf

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BAFRA_MINIMUM-STANDARD-REQUIREMENT-FOR-STREET-FOOD.pdf

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BAFRA_MINIMUM-STANDARDS-FOR-ESTABLISHMENT-AND-OPERATION-OF-temporary-food-stalls.pdf

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BAFRA_MINIMUM-STANDARDS-FOR-ESTABLISHMENT-AND-OPERATION-OF-temporary-food-stalls.pdf

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BAFRA_Training-Manual-for-Meat-Handlers.pdf

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BAFRA_Training-Manual-for-Street-Food-Vendors.pdf

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BS-FOR-STREET-VENDED-FOODS.pdf

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BS-FOR-RED-RICE.pdf

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BS-FOR-NATURAL-MINERAL-WATER.pdf

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BS-for-MAIZE-AND-MAIZE-PRODUCTS.pdf

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BS-FOR-HOME-PROCESSED-PICKLES.pdf

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BS-for-GENERAL-STANDARD-FOR-FOOD-HYGIENE.pdf

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BS-FOR-DRIED-FISH-AND-DRIED-SALTED-FISH.pdf

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BS-FOR-CHILLI-AND-CHILLI-POWDER.pdf

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BS-for-BhutanGAP.pdf

http://www.bafra.gov.bt/wp-content/uploads/2015/06/BS-FOR-ANIMAL-MEAT-AND-CO-PRODUCTS.pdf


72

(ISO), International Electro Technical Commission (IEC) and the South

Asian Regional Standards Organization (SARSO).

The BSB has various technical committees for setting up standards as

per ISO requirements. The Food and Agriculture Technical Committee

(TC-02) is the committee responsible for developing food and agriculture

standards and it is chaired by a designated official from BAFRA. While

BAFRA is responsible for developing and implementing mandatory food

standards (also known as Technical Regulations), BSB is responsible for

developing Voluntary Standards related to Foods.

4.5 Food Import Control

Bhutan is heavily dependent on imported foods that accounts for 16.0%

of total imported value amounting to Nu. 66.92 billion in 2017 (DRC,

2017)As per the FAO&RGOB draft report on National Situation on

Imported Food Control in Bhutan, main imports of Bhutan consist of oil

and fuels, base metals, machinery and electrical appliances, vehicles,

wood and food commodities. India accounted for 80% of total imports,

and other top five exporting countries in terms of value of goods

included South Korea, Japan, China, Thailand and Singapore. Anecdotal

evidences suggest that Bhutan also imports majority of food commodities

from India, Thailand, Bangladesh, Singapore, and Nepal(FAO &RGOB,

2019).Trade dominance with India has been mainly attributed to free

trade and transit agreements establishing a trade regime between the two

countries (Tobgay, 2018).

The top five foods imported include cereals, edible vegetables, roots

and tubers, vegetable oils and margarine, sugars and sugar

confectionery, milk and dairy products. Meat and meat products

considered to be high-risk was ranked 8th largest food imported in 2017

(RGOB & FAO, 2019) showing the need for it to be regulated effectively

through proper import control measures.

Bhutan a share porous border along southwest, south and southeast

region of the country with India. There is no official trade route along the

northern border with China. Therefore, all land trade routes are

connected with or through India, except for additional direct air route

with Bangladesh, Nepal, Thailand, and Singapore. The majority of

import and export of goods takes place through Phuentsholing entry

point located in South western part of the country for all goods.

Approximately 80% of imported food commodities are cleared through


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Phuentsholing entry point followed by Gelephu and Samdrup Jongkhar

entry points. Custom clearance of all imported goods including food

commodities from countries other than India (third countries) are done

only through Phuentsholing entry gate.

BAFRA has developed Bhutan Biosecurity System (BBSS), which is a

web-based database used for regulation of import and export of animals,

plants (live plants, seeds and seedlings), and their products including

food of animal origin. This database is used for managing import and

export application processing, issuance of permits, import and export

inspection and certification at border points.

Food Import Control for processed / general food products is not well

established although mandatory labelling requirement is being

implemented for pre-packed imported food products since 2018. Further,

a simplified import permit process for issuance of permit for imported

fresh fruits and vegetables was initiated in 2016 after the incident of high

level of pesticides in some imported vegetables beginning of 2016.

A comprehensive documentation on food import control has been

developed by BAFRA and the two documents relating to food

importation (“Guidelines for import of food into Bhutan, 2018” and

“Good importing practices, 2018”) provide guidance on how food

imports should be managed. However, the implementation of this

guideline is at an early stage.

5. New Food Safety Initiatives

5.1 Introduction of Food Safety Culture

The Global Food Safety Initiative (GFSI, 2018) has defined food safety

culture as, “shared values, beliefs and norms that affect mindset and

behaviors towards food safety across/in/throughout an organization”.

Experience and lessons learnt from other developed countries such as

Australia shows that despite much investment and efforts in term of

technology and processes being put in place, Australia still faces a huge

number of food-borne incidences. For example, Australia experiences

about 4.1 million cases of foodborne illness, 30800 hospitalisations and 76

deaths in a year (FAO & BAFRA, 2019). Food Safety Culture was

introduced in the Australian system in recognition that something more

than procedures and processes was needed to achieve effective food

safety outcomes (FAO & BAFRA, 2019).


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The Australian case study shows that the better the food safety

control in place, the better is the detection capacity and hence, the more

problems in food safety. This would mean that Bhutan having low

laboratory capacity detection facilities in place would result in many food

safety issues and illness, which is currently being unrecognized,

unreported and uninvestigated.

The Food safety culture seminar and workshop held in Bhutan noted

that a focus on culture and human behavior can significantly improve

food safety and quality outcomes. Building a strong food safety culture

must go hand-in-hand with technology improvements to achieve optimal

food safety outcomes, particularly in a challenging regulatory

environment with increasing pressure on domestic and imported food

supply (FAO & BAFRA, 2019).

5.2 Food Safety Indicator Pilot Project

The goal of strengthening national food control system was discussed

during the FAO Regional workshop on Food Safety Indicators (FSIs) in

the Asia Pacific held in Singapore in 2017. At the consultation, all the

regional experts and member countries confirmed the need and

importance of having measurable and actionable food safety indicators

and came up with a pool of 40 regional food safety indicators for the

national food safety competent authorities to develop their national food

safety indicators.

Bhutan sensing the need to monitor and evaluate the effectiveness of

food safety control programs in the country, volunteered along with four

other countries in the region namely China, Cook Island, Philippines and

the Republic of Korea to pilot some of the regional indicators to set

specific and practical national indicators. The FSIs could help assess the

progress and effectiveness of food safety programs/measures currently

implemented in the country.

The Codex Alimentarius guideline “Principles and Guidelines for

Monitoring the Performance of National Food Control Systems” (CXG

91-2017) also recommends the member states to establish FSIs for each

desired outcome to assess the effectiveness of national food control

system. The Food Safety Indicator pilot project in Bhutan began in

January 2019 through technical support from FAO. Through several

workshops and meetings with relevant stakeholder Bhutan has finalized

four food safety indictors:


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i) Food Handlers Food Safety Knowledge this indicator intends

to measures the proportion of food handlers with the required

level of basic food safety knowledge.

ii) Self-checking system for cottage and small industries this

indicator intends to measures the percentage of agro-based

cottage and small industries in Thimphu implementing food

safety self-checking system.

iii) Food borne disease outbreak investigations this indicator

intends to measures the proportion or percentage of food borne

diseases (FBD) successfully investigated.

iv) Egg traceability this indicator intends to measures the number

of egg retailers/wholesalers with effective traceability systems in

place for table eggs.

6. Food Safety Gaps and Challenges

Despite efforts by BAFRA to execute their mandate, implementation of

food safety measures remain a major concern due to limited capacity in

the areas of infrastructure, technology, know-how and human resources.

The following are the major issues and challenges in the area of food

safety in Bhutan.

6.1 Policy and Legal Environment Challenges

i) Food and Nutrition Security Policy, 2012

The Food &Nutrition Security (FNS) Policy 2012 (RGOB, 2012) of Bhutan

focus on ensuring Food Security and Nutrition through four food

security dimensions such as Food Availability, Food Accessibility, Food Utilization and Stability dimension. Food safety concern in this policy is

addressed through one of the objectives that focuses only on enabling

increased level of safe food imports and improved access to international food distribution facilities. This indicates other important dimensions of

food safety such as testing, certification, accreditations and capacity

building are not covered which are the essential elements of any National Food Control system.

Food safety being cross cutting in nature, the absence of a clear

guiding policy, with specific goals/ principles and strategies will lead to

food safety programs being planned and executed in isolation and this will not address the issues required to mitigate current and future risks

in the ever changing global food safety environment.


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This FNS policy has not been successful in providing clear-cut policy

directions where food safety is concerned. This indicates that food safety

when placed under bigger policy umbrella gets sidelined in terms of

priority and actions.

ii) The Food Act of Bhutan 2005

The purpose of this Food Act of Bhutan 2005 is to “protect human health

and to regulate and facilitate the import, export and trade of food in the

kingdom of Bhutan”. This Act is focussed mostly on commercial food. It

establishes the National Codex Committee (NCC) bearing an important

responsibility of drafting national food standards with reference to

international and regional standards and practices such as the codex. The

Act also establishes the National Food Quality and Safety Commission

(NFQSC) which is the apex body empowered to formulate polices and

discuss any matters related to food control in the country.

The Food Act mandate’s BAFRA to act as the food inspectorate and

undertake border control inspection to ensure food business comply with

food safety and hygiene standards. However, it does not make provision

for undertaking surveillance of food hazards or stipulate a risk-based

approach to preventing, detection and controlling food hazards along the

food chain (WHO, 2017). The Act also does not make provision for

Nutrition/Nutrition content labelling and other provision related to IHR

2005 standards.

Further, legislation enacted after the Food Act such as the Bhutan

Standards Act 2010 has also impacted food safety especially in the area of

and standard development. Both the Food Act and the Bhutan Standards

Act stipulates the same functions to develop national standards and

facilitates their implementation. Boundaries between standards and

technical regulations are unclear and not adequately addressed in the

BSB Act or the Food Act.

6.2 Infrastructure, Standard, Certification and Testing Challenges

Bhutan like any other developing country faces many challenges in the

area of standard, certification and testing. Inadequate infrastructure,

facilities and resource especially in the area of inspection and laboratory

testing is leading to ad-hoc monitoring of food safety programs. There is

no well-established food safety surveillance system in place to monitor

food safety hazards. The Royal Center for Disease Control (RCDC) under

the Ministry of Health has established a National Early Warning, Alert &


77

Response Surveillance Information System (NEWARSIS). However, this

surveillance system is mostly focused on Infection Diseases.

There are no systems to systematically monitor chemical contaminant

in food. Food Safety monitoring programs are carried out on random

basis as and when resources for test kits, consumables and testing are

available. Ad hoc tests are carried out mostly when a public health safety

alarm surfaces, resorting to a reactionary mode. For example, current ban

on the import of some varieties of chilies owing to pesticide residues

beyond safety limits. This means there is no systematic way to control

food safety hazards. Further, inconsistencies in recognition of certificates

issued under the SPS/ technical standards by the exporting countries are

some of the challenges faced by food business in the country.

The NFTL located at Yusipang, Thimphu lacks state of the art

equipment such as Liquid Chromatography Mass Spectrometry (LCMS)

and skilled personnel to conduct most of the required food safety and

quality tests on high end equipment such as Atomic Absorption

Spectrometry (AAS) and Gas Chromatography Mass Spectrometry

(GCMS) to meet the regulatory and food business demand. Further, its

location in Yuispang (15 km away from Thimphu) places constraint with

respect to timely transport and analysis of samples. Due to the lack of

well-equipped technical laboratory facilities, most of the samples

requiring sophisticated testing are sent to India and Thailand. However,

sub-contracting samples outside Bhutan often lead to additional cost on

tests and time delays. Inadequate laboratory testing and certification

facilities have often been cited as one of the main hurdles for the food

export from Bhutan.

7. Recommendations for Improving Food Safety

i) Policy and Legal

A standalone food safety policy is required for the long-term

management and control of food safety that commands consumer

confidence and ensures public health through a shared vision between

stakeholders (along the food chain) of the principles and objectives that

will define the country’s food safety system.

The Food Act needs to be revised taking into consideration one

health and risk based approach and principles to ensure food safety. The

role of the Food Safety Authority needs to be redefined to be less about


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fines and penalties and more about being educator and facilitator so as to

enable food business and people who have a stake in food safety to meet

the minimum food safety and quality standards. Further clarity of roles

in areas of food standard and certification needs to be addressed.

ii) Infrastructure, Standard, Certification and Testing

Many literatures have noted the adoption of harmonized standards as an

option for facilitating trade while ensuring food safety and protecting

consumer health (FAO, 2017).Therefore, as suggested by Rahman (2018),

Mutual Recognition of Conformity Assessment in the area of inspection

or Mutual Recognition Agreement (MRA), testing and certification could

be a way out. For example, initiating Memorandum of Understandings

and equivalence technical cooperation (MoU/MRA) between the

exporting and importing country could be one possible solution.These

MoUs/MRAs could look into either harmonization of standards or

recognition of each other’s standards if incase harmonization is difficult.

The MoU/MRA will not function in absence of initiatives to

strengthen the relevant Conformity Assessment Body (CAB) Institutions

(Rahman, 2018).Therefore, strengthening institutional technical capacity

in CAB is a critical issue. Most importantly develop laboratory,

institutional and technical capacity to international standards.

Specifically, following are the suggestions:

Increase the scope of NFTL accreditation to cover all the SPS and

Food Safety testing.

Establish Laboratory Information Management systems to

network different departments and provide automated analytical

reports to regulators and clients.

Upgrade or adequately equip the existing laboratories with state

of art equipment, adequate resources and training.

Development of small satellite laboratories at the major entry

border points.

The establishment of chemical contaminant monitoring surveillance

system and building research capacity in food safety in BAFRA/ RCDC/

National Post Harvest Center, Department of Agriculture and

universities in the country will greatly contribute to generating data on

food safety hazards and risks.

Food safety cannot be assured by regulators alone, therefore it is

recommended that the technical capacity of the food businesses in the


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country is developed by imparting training on - Standard, certification and

regulations at regular intervals.

Private sector engagement in food safety program and activities especially in standards and testing arena is recommended. Taking the example from the Food Safety and Standards Authority of India, Bhutan could explore possible future investment partnership in the area of testing and certification.

iii) Food Import Control

A risk based rather than a hazard based approach allows for better resource allocation which is particularly important for poorer countries (FAO, 2017). Therefore, to enable a risk based approach and establish an efficient food import control system, Bhutan must develop basic systems and facilities at the border that serves all relevant agencies and food businesses at the entry points. These can be achieved through the following suggestions:

Well-equipped satellite laboratories and quarantine facilities as it is an important pre-requisite.

Training of food inspectors and food businesses at regular intervals on “guidelines for import of food into Bhutan, 2018,”“Good importing practices, 2018” and risk based inspection and sampling manual for imported food commodities 2019.

Upgrade and equip the existing NFTL in Thimphu well to function as a Reference laboratory for food testing. NFTL should be supported by the satellite laboratories at the border stations that can screen out negative samples for release of consignments.

Development of Food import Control Database system to manage food import using real-time data.


The Government of Bhutan has implemented lots food safety plans and

programs and introduced new initiatives, however there are lots of challenges and gaps identified that need to be addressed so that scientific

and regulatory data is generated for informed decision making. Bhutan

faces many challenges in the area of standards, certification and testing. Inadequate infrastructure and laboratory facilities, resource and technical

skilled professional constraints are the primary issues the food safety

authority is faced with. Therefore, given the mandate to ensure public health through food safety and trade facilitation, a strong institution with

enabling environment is required.


80

Following are the way-forward for ensuring food safety in the country:

Targeted investment and funding in food safetyFood safety

should receive targeted investment from government and

development partners so as to establish a systematic and efficient

food safety monitoring and surveillance program.

Implement a robust food import control systemBhutan being

an import driven economy and relying heavily on imported food.

Essentially the import control system should aim at developing a

real time integrated data base system so as to generate enough

food safety data on imported food for informed decision making

and regulatory action.

Capacity building of CAB Robust policy, legislation and

frameworks alone cannot ensure food safety. Technical capacity

building of the inspection, laboratory and certification system is

an equally important component to ensure food safety.

Development of Food Safety Indicators Develop food safety

indicators to actually understand where Bhutan stands in terms

of food safety in the country as these tools could be used for

performance evaluation in the area of food safety.

Roll out of food Safety Culture Technology and processes

alone cannot ensure food safety. Technology and process

development must go hand-in-hand with culture and

commitment which is the essence of food safety culture.

Therefore, Food Safety Culture should be fostered in food

business so as to revolutionize the way people in the food sector

think and work.

References

BAFRA. (2017). Report on the Organizational Development Exercise. Bhutan

Agriculture Food and Regulatory Authority, Ministry of Agriculture and

Forests, Bhutan.

DRC. (2017). Bhutan Trade Statistics. Department of Revenue and Customs, Ministry

of Finance, Thimphu.

Dizon, F., Jackson, C., Adubi, A. and Taffesse, S. (2019). Bhutan Policy Note -

Harnessing Spatial Opportunities in Agriculture for Economic Transformation.

World Bank Group Report, 31 - 33.

FAO & BAFRA. (2019). FAO-BAFRA Draft Report: National Seminar and Workshop

on Food Safety Culture and Food Safety Indicator Pilot Project.


81

FAO & RGOB. (2019). Draft Report on National Situation on Imported Food Control

in Bhutan. Food and Agriculture Organization and Royal Government of

Bhutan, Thimphu.

FAO. (2017). Nutrition –Sensitive Agriculture and Food Systems in Practice–Options

for Intervention. Revised Edition, Food and Agriculture Organization Report,

Rome, 73-74.

GFSI. (2018). A Culture of Food Safety – A Position Paper from the Global Food

Safety Initiative, Summary (GFSI V1.0-4/11/18).

Jaffee, S., Henson, S., Unnevehr, L., Grace, D., and Cassou, E. (2019). Overview: The

Safe Food Imperative–Accelerating Progress in Low and Middle Income

Countries, World Bank Group.

NSB. (2017). Population and Housing Censes of Bhutan. National Statistics Bureau

Report, Bhutan.

Rahman, M. (2018). Improving Trade Felicitation: Am Emerging Urgency in South

Asia, ‘Putting Consumer First-Essays in Honor of Pradeep Mehta’ CUTS

International, Jaipur, India.

RGOB. (2012). Food and Nutrition Security Policy of kingdom of Bhutan, 2012. Royal

Government of Bhutan, Thimphu.

Tobgay, S. (2018). Identification of Potential Exports Facing Sanitary-phytosanitary

and Technical Barriers to Trade Measures in the SASEC Sub region - Bhutan

National Study.

WHO. (2016). Burden of foodborne diseases in the South East Asia Region. World

Health Organization Report, India.

WHO. (2017). Joint External Evaluation of IHR Core Capacities of the Kingdom of

Bhutan.


Chapter 6


and Policy Perspectives in India

Vishwajeet Haldar

Department of Food and Public Distribution, Ministry of Consumer Affairs

Food and Public Distribution, India


Abstract

India has socio-cultural diversity and has wide range of food habits among the

people. In developing country like India, due to globalization, industrial growth

and green revolution, the Food Safety and nutrition becomes a serious issue which

needs prior attention and ranks 72nd place in Global Food Security Index (GFSI).

Food safety, nutrition and food security are inextricably linked and unsafe food

creates a vicious cycle of disease and malnutrition, particularly affecting infants,

young children, elderly and the sick. Even though several schemes were

introduced, there is existence of epidemic diseases and nutritional disorders

among the population especially in child and young age (less than 18) groups

irrespective of gender. The Government of India has taken several measures to

ensure the food safety and nutrition from its production level to handling,

preparation, storage, distribution and to the consumer table. The food availability

and supply were ensured through National Food Security Act 2013 and

standards were framed for its quality by enforcement of strict laws in Food Safety

and Standards Act 2008. The National Nutrition Mission, 2013 is focused on the

supply of nutritious food to the children and women in order to eradicate the

nutritional disorders which exist in the country and through which various

schemes were implemented and in force. The food supply chains were now crossed

International Borders and establishment of collaboration between governments,

producers and consumers will helps to ensure food safety.

Keywords: Food safety, food standards, programmes, food fortification

1. Introduction

Food is essential for our survival and a basic building block of life. Safe

and healthy food, along with fitness, is the foundation for good health and

Haldar: Food Safety: Current Status, Challenge, Opportunity and Policy Perspectives in India

83

key to preventive healthcare. Not only this, food is intimately associated

with our society and culture, environment and economy, all at once, and

therefore with our society and culture, environment and economy, all at

once, and therefore with our happiness and sense of self. Hygienic, safe

and nutritious food is critical to sound health. Every citizen rightfully

expects safe food and it is the responsibility for the Government to ensure

its availability. India ranks 72nd in Global Food Security Index and

occupies 85thplace in Quality and Safety (GFSI, 2019).

Food Safety and Nutrition is an inter-sectoral issue, occurring at the

interface of health, agriculture and industry (Motarjemi & Kaferstein,

1997). Even though, as the country’s apex food body, the Food Safety and

Standards Authority of India (FSSAI) has the mandate to ensure safe food

for all at all times, it has to work with wide range of stakeholders, take

both regulatory and supportive actions and take a “Food Systems

Approach” to address issues of food and nutrition in a holistic manner.

Consumption of safe and whole some food is perhaps the most powerful

tool for preventive and primitive health care. Multiple actions on both

supply-side and demand side are needed to ensure that food is safe and

wholesome. Several of these actions require people’s personal

responsibilities.

Unsafe food and poor diet create a vicious cycle of disease and

malnutrition, particularly affecting infants, young children, elderly and

the sick (Sara, 2013). Food-borne illnesses remain a threat to the entire

population. The consequences of consuming unsafe foods are suffering,

disability and loss of life, foregone incomes and wages, incur high

personal and social costs. The burden of food borne illnesses is

comparable to Malaria, HIV/AIDS and tuberculosis taken together, yet it

does not get the required attention (Paul et al., 2015). As per the estimate

of UN-India, around 195 million people are undernourished, which

envisages 43% of children (NFSUN, 2018).

India is going through an epidemiological shift from communicable to

non-communicable diseases, particularly the rising burden of diet-related

diabetes, hypertension and obesity. The country is facing a silent epidemic

today of rising childhood obesity coupled with under-nutrition and

micro-nutrient deficiencies. The expected food borne disease burden is set

to rise from 100 million in 2011 to 150-177 million people per year in 2030

(WHO-FERG, 2015); thus, increasing from one out of twelve to one out of

nine people falling sick owing to the consumption of unsafe foods. Apart


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from impact on health, unsafe food and poor diets have grave social,

economic, trade, tourism and environmental consequences ranging from

land degradation, water and air pollution and biodiversity loss-directly or

indirectly affecting the food consumption (WHO, 2019).

A new food safety system to address relevant issues across value chain

is still evolving. It continues to be rudimentary and consumer food safety

concerns are rising faster than the ability of the regulatory apparatus to

respond to them. The rise of diet-related diseases suggests that people are

today eating less healthy food than they were eating a decade ago. Since,

Food safety, nutrition and issues of food security are inextricably linked,

these issues can be addressed with a relatively small investment and smart

use of a range of policy levers from “soft” (social and behavioural changes)

to “hard” (regulations and enforcement) options.

2. Food Security, Safety and Nutrition Framework

In India, the Food Safety and Nutrition policies are framed and monitored

by the Ministry of Agriculture and Farmers Welfare, Ministry of Animal

Husbandry, Dairying and Fisheries, Ministry of Consumer Affairs, Food

and Public Distribution, Ministry of Health and Family welfare, Ministry of

Women and Child Development and Ministry of Human Resource

Development, Food Safety and Standards Authority of India (FSSAI) and

national bodies such as Food Corporation of India (FCI), Central

Warehousing Corporation (CWC), Central Rail Side Warehouse Company

Ltd. (CRWL) and Warehouse Development and Regulatory Authority

(WDRA) and State Authorities.

The farm produces are monitored by Ministry of Agriculture and

Farmers Welfare, whereas the post-harvest operations viz., procurement,

storage and distribution of food grains, sugar and vegetable oils and

consumer awareness are monitored by Ministry of Consumer Affairs,

Food and Public Distribution and relevant agencies such as, FCI, CWC,

WDRA and CRWL. Fisheries and fisheries products, dairy production,

meat production and their quality are monitored by Ministry of Animal

Husbandry, Dairying and Fisheries. The production and quality of

processed food items are taken care by Ministry of Food Processing

Industries, whereas heath related drugs, nutrition programmes are being

monitored by Ministry of Health and Family Welfare, Women and Child

Development and Human Resource development.


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Food Security,

Safety and Nutrition

FSSAI

M/O Agriculture and Farmers

Welfare

M/O Animal Husbandary Dairying and

Fisheries

M/O CA, Food and

Public Distribution M/OHealth

and Family Welfare

M/O Food Processing Industries

M/O Women & Child

Development

M/O Human Resource

Development

Figure 1. Overview on the country’s Food safety and nutrition management

3. Food Security

Food Security is to ensure that all people at all times, should get access to

the basic food for their active and healthy life and is characterized by

availability, access, utilization and stability of food (NITI Aayog, 2017).

Though, the issues of food security at the household was being addressed

by the Government from long through the Public Distribution System and

the Targeted Public Distribution System (TPDS), but the enactment of the

National Food Security Act (NFSA), 2013 on July 5, 2013 makes a

paradigm shift in the approach to food security from welfare to rights

based approach (DFPD, 2013).

National Food Security Act, 2013

The NFSA legally entitles up to 75% of the rural population and 50% of

the urban population to receive subsidized food grains under TPDS and

hence it covers almost one-third of the country’s population. At present

around 80 crore persons have been covered under NFSA for receiving

highly subsidized food grains. It also envisages special provisions for

pregnant women and lactating mother and children in the age group of 6


86

months to 14 years, by entitling them to receive nutritious meal free of

cost through wide spread network of Integrated Child Development

Services Centres and through schools under Mid-Day Meal Scheme. It also

covers population under Antyodaya Anna Yojana (AAY) scheme, for

poorest of poor, entitlement of 35 Kg of food grains per family per month

and priority households are entitled to 5 Kg per family per month.

NFSA defines the Joint responsibility of the Centre and States/UTs.

While the centre is responsible for allocation of required food grains to

States/UTs, transportation of food grains up to designated depots and

providing central assistance to States/UTs for delivery of food grains from

godowns to doorstep of the Fair Price Shops (FPS). The States are

responsible for identification of households, issuing ration cards to them,

distribution of food grain as per entitlements to households through FPS,

setting up of grievance redressal mechanism and strengthening of TPDS

(NFSA, 2013).

Food grains under NFSA were made available at subsidized price Rs

3/2/1 for rice, wheat and coarse grains respectively, initially for three years

and also extended up to June 2019. Further, Direct Benefit Transfer (DBT)

has been implemented in September 2015. Under the scheme, cash

transfer mode under which cash equivalent of subsidy is being transferred

directly into the bank accounts of eligible households to enable them to

purchase food grains from open market.

4. Food Safety

Food Safety and Standards Authority of India (FSSAI) monitors and

governs the quality and safety policies of all food items and also on its

nutrition values. The Government of India during 2008 enacted the Food

Safety and Standards Act 2006 and established the Food Safety and

Standards Authority of India (FSSAI), targeted to regulate manufacture,

storage, distribution, sale and import of food to ensure availability of safe

and wholesome food for human consumption and for matters connected

therewith. The overview of the duties and functions of the Food Authority

is presented in Table 1.

The FSSAI functions with a Chairperson and 22 members, under

which Food Standards are framed by Scientific Committee, which

envisages 17 Scientific Panels for different food items; whereas compliance

and Inspection are monitored by Central Advisory Committee, State Level

Steering Committee and also District Level advisory Committee. FSSAI


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also provides some support in the form of imparting necessary training

and capacity building of enforcement staff of States/UTs, strengthening

food testing infrastructure etc. The huge diversity among States/UTs in

terms of size, population, food culture, languages, industry penetration,

manufacturing capability and location has its own set of challenges in

terms of enforcement, which is consistently growing and improving over

the last few years. The Food Authority was created in recognition of

interconnectedness to address the confusion in the minds of consumers,

traders, manufactures arising from multiplicity of food regulations

administered by different agencies. It has ensured an integrated line of

control and single reference point for all matters relating to food safety

and nutrition, standards, regulations and compliance and works with

various Central Ministries/Departments.

5. Standards and Regulations in Force

Ministry of Health and Family welfare notified the Food Safety and

Standards Rules, 2011, which came into effect from 5th August 2011. Under

the Food Safety and Standards Act, 2006, the following Principal

Regulations are in force.

I. Food Safety and Standards Regulations

Food Safety and Standards (Licensing and Registration of Food

Businesses), Regulation 2011; (Food Product Standards and Food

Additives), Regulation 2011.

Food Safety and Standards (Prohibition and Restriction on Sales),

Regulation 2011; (Packaging and Labelling), Regulation 2011;

(Contaminants, Toxins and Residues), Regulation 2011;

(Laboratory and Sampling Analysis), Regulation 2011; (Food or

Health Supplements, Nutraceuticals, Food for Special Dietary

Uses, Foods for Special Medical Purpose, Functional Foods and

Novel foods), Regulation 2016.

Food Safety and Standards (Imports), Regulation 2017; (Approval

for non-specified Food and Food ingredient), Regulation 2017;

(Organic Food), Regulation 2017; (Alcoholic beverages),

Regulation 2018.


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Table 1. Duties and Functions of Food Authority in India

Set Direction Science Based Strengthen capacities

Consumer Focused

Set standards of identity for

articles

Set standards for labelling and

claims

Set limits for additives, contaminants,

residues etc.

Develop guidelines for methods of sampling and

analysis

Implement appropriate border controls for imported

food items

Conduct risk analysis including assessment, management and communication

of risks.

Develop guidelines for accreditation of certification

bodies.

Conduct survey of enforcement and implementation

of FSS Act

Guide State level authorities on matters related to Food Safety

and Standards.

Provide scientific advice and technical support for framing

policies.

Lead R&D activities in areas such as, consumption and risk exposure, incidence and prevalence of biological risks, contaminants, rapid

alert system. etc.

Develop crisis management protocols for food

safety.

Develop framework for scientific cooperation, exchange of information and expertise, implementation of

global best practices;

Provide scientific advice and technical support to improve relations with international

organizations.

Develop risk assessment

methodologies

Promote consistence between international and

domestic standards

Contribute to the developments of international

technical standards.

Provide trailing to strengthen capacities of food authority staff at national and state level, food business operators and other stakeholders within the food safety

ecosystem.

Provide appropriate simple, timely information to consumers and relevant

stakeholders.

Communicate about opinions of scientific committees and panels in a timely

manner.

Share results of

scientific studies.

Disclose annual declarations of interest by Food Authority, members of advisory committee, scientific committee and panels etc. In relation to

meeting agendas.

Source: www.fssaifoodlicense.com

http://www.fssaifoodlicense.com/


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II. Food Safety and Standards Authority of India Business

Transaction Regulations, 2010

Food Safety and Standards (transactions of business and its

meetings), Regulation 2010.

Food Safety and Standards (Procedure for transaction of business

of Central Advisory Committee), Regulation 2010.

Supersession of Food Safety and Standards Authority of India

Regulations, 2010.

III. Food Safety and Standards Rules, 2011

6. Risk Assessment

To improve Food Safety Framework, the Food Authority has established a

Risk Assessment Cell (RAC), which carry-out the functions of risk

assessment to support risk assessors and risk managers. The RAC will

identify the nature and characteristic of the food safety issues and develop

a risk profile, describing the situation, product or commodity involved

and the information on the pathways by which the consumers are exposed

to the hazard. The studies are carried out by the RAC and upon discussion

with the Scientific Panel, the Food Authority will provide decision to

mitigate or control the risk.

7. Food Imports

In the country, all imports of articles of food are subject to provisions of

the FSS Act, 2006, Section 25. It stipulates that no person shall import into

India, any article of food in contravention of the act or any rules and

regulations made there under. Foods imported into the country are

regularly inspected at sea ports and airports by the Inspection and

Certification agencies of Government of India. The major food exporting

countries are Australia, Indonesia, Ukraine, USA, Canada, Brazil and

Myanmar. As per the Food Import Clearance System’s data, the major

food commodities being imported in India are oils and fats, vegetables,

fruits and nuts, cereals, sugars and sugar confectionaries, coffee, tea,

spices and beverages. In order to facilitate compliance of food imports,

orders have been issued for recognition and acceptance of the test analysis

certificates issued by Bangladesh Standard and Testing Institution (BSTI),

Dhaka, Bangladesh and the National Food Testing Laboratory, Bhutan, by

the authorities by India dealing with food imports. Recently, instructions


90

on import on special food formulations for patients with life threatening

disease and inborn error of Metabolism have been issued by FSSAI.

8. Food Safety Compliance

In view of implementation of Food Safety Compliance in the country,

there are norms for licensing and registration of Food Business Operators

(FBOs), which is also monitored with the aid of enforcement machinery in

States/UTs through which regular surveillance, monitoring, inspection

and random sampling of food products are undertaken by the officials of

Food Safety Departments of the respective States/UTs to check the food

products comply with the laid down standards. The eligibility criterions

for a Central or State License and Registration for FBOs is presented in

Table 2. To evolve the overall approach to compliance, the Food Authority

is adopting a risk-based approach towards inspections and surveillance,

aligning to global standards.

The objectives of ‘food safety compliance’ are as follows:

Prevent unsafe food to be placed in the domestic market in order

to protect food consumers in India.

Draw a food inspection system from a product – based process to

a risk-based process that can be used by food inspectors across the

entire food sector, regardless of the product (s) handled or

manufactured.

Linking ‘Risk Grade’ with Licensing & Registration System.

The Food Authority has also developed Food Safety Compliance

through regular Inspection and Sampling (FoSCoRIS) to bring

transparency in food safety inspection and sampling. It is a web-based

mobile app for inspection and sampling. It can be used with hand held

device like mobile phones, tablets as well as desktops, which will serve as

an empowering tool to assist in:

Monitoring data collection and data analysis on real time basis.

Viewing details of the officers conducting inspections.

Geo-tagging location of the food premises being inspected.

Capturing the images of premises and uploading in the system.

The analysis of collected samples are carried out in primary food testing

laboratories (244 numbers spread across India), which are used by the

regulatory authorities, consumers and food business operators to ensure

compliance of food laws at all levels.


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Table 2. Eligibility criteria are for a food business operator for central or

state license and registration

Central License

Dairy units with more than 50000 L of liquid milk /day or 2500 MT of milk solid

per annum.

Vegetable oil processing /producing units installed capacity of more than 2 MT

per day.

Slaughter house equipped to slaughter more than 50 large animals /150 small

animals/1000 poultry birds per day.

Meat processing units equipped to handle or process more than 500 kg of meat

per day/150 MT per annum.

Food processing units having installed capacity of more than 2 MT/day except

grains, cereals and pulses milling units.

100 % export-oriented units.

All importers importing food items including food ingredients and additives for

commercial use.

All food business operators manufacturing/processing/importing any

proprietary food for which NOC has been given by the Food Authority.

Registered/head office of FBOs operating in two or more States.

Food catering services in establishments and units under Central Government

agencies like railways, air and airport, seaport, defence etc.

Hotels with 5 star and above accreditation.

State License

All FBOs other than those eligible for Registration/Central license.

All cereals and pulses milling units.

Registrations

Petty manufacturer, seller, retailer, itinerant vendor on temporary stall holder.

Small food businesses with an annual turnover not exceeding 12 lakhs Rupees.

Production capacity of food not exceeding 100 kg/L per day.

Procurement or handling and collection of milk upto 500 Lper day or less

Slaughtering capacity of 2 large animals or 10 small animals or 50 poultry birds

per day or less.

Source: www.fssaifoodlicense.com.

Further, there are 18 referral laboratories of Food Authority in the

country and also two recognised foreign food testing laboratories, each

one in Bhutan and Bangladesh. In order to enhance the food safety


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further, Mobile Food Testing Laboratories (MFTLs) referred as Food

Safety on Wheels (FSWs) is also being launched for executing following

functions:

Surveillance and creating awareness regarding the food safety in

remote areas, large public congregations, schools and consumer

organizations;

Educating the consumers in various aspects of food safety laws

and common hygiene practices;

Facilitating on-the spot-test facilities for qualitative adulteration of

common food items. Each FSW can test more than 54 parameters

qualitatively across 7 different categories.

9. Food Safety Awareness Initiatives

A number of activities have been organized to make stake holders aware

about the essential elements of the Act, Rules & Regulations involving

print and electronic media. The materials in the form of

booklets/leaflets/posters have been developed on food safety, personal

hygiene for food handlers, kitchen food safety, points to be considered

while consuming street food, licensing, registration, food import

clearance, labelling, adulteration of milk and milk products, food safety

for children, food safety at homes, awareness campaigns, workshops,

seminars for various stakeholders of the Food Authority.

The important activities on food safety are as follows:

FOSTAC - Food Safety, Training and Certification.

Safe and Nutritious Food programmes (SNF) in hospital, school,

workplace, home, railways.

Serve Safe Food Smart Cities programmes.

Jaivik Bharat; Milk Quality Monitoring.

Food Safety Compliance through Regular Inspection and

Sampling (FoSCoRIS)- an online platform to bring in transparency

in food safety inspection and sampling.

Food Safety Magic Box-for schools.

Food Fortification; Food Smart Consumer.

BHOG - Blissful Hygienic Offering to God.


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Release of Yellow book (for schools), Pink Book (for Home),

Purple Book (Hospitals) and Orange Book (for work place).

Guidelines for safe & hygienic food festivals, street foods and food

hubs.

10. Policies on Nutrition Improvement

The country has specific socio-economic level, different ethnic groups,

food habits, health infrastructures and communication facilities. Adequate

nutrition is essential for human development. A review of trends in

economic growth, health and nutrition indicates that the country is

undergoing rapid socio-economic, demographic, nutritional and health

transitions.

High levels of maternal and child under-nutrition in India have

persisted, despite strong constitutional, legislative policy, plan and

program commitments in the early period of independence. The

Government is committed to address the nutritional challenges of the

country. In the last 20 years, there has been substantial improvement in

the nutritional status of the Indian population. This improvement results

from not only changes in food intake, but also socio-economic factors,

increased availability of potable water, lower morbidity and improvement

of health facilities. The average Indian diet remains largely deficient in

green leafy vegetables, meat, fish, milk and milk products. Moreover, it

also remains deficient in some micronutrients such as vitamin A, iodine

and iron.

Adequate nutrition is essential for human development. Malnutrition

includes both under nutrition as well as over-nutrition and refers to

deficiencies, excesses or imbalances in the intake of energy, protein and/or

other nutrients. A review of trends in economic growth, health and

nutrition indicates that the country is undergoing rapid socioeconomic,

demographic, and nutritional and health transitions. Under nutrition

continues to be persistently high in India and still remains a great

challenge. Some of the major nutritional challenges in India are as follows:

High levels of adult population are under nutrition, roughly

affecting one-third of the country's adults.

High levels of child under nutrition, affecting almost every second

child.

High levels of maternal under nutrition, leading to low birth-

weights.


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Inappropriate and sub-optimal infant and young child feeding

and caring practices.

Issues relating to prevention of illnesses and access to healthcare.

Low awareness regarding nutrition and use of local nutritious

food including sources of nutrients.

Inadequate attention to health and nutrition of adolescent girls.

Inadequate access to safe drinking water and sanitation facilities.

In order to improve the nutritional status of public health, the

Government of India implemented the National Nutrition Policy during

1993 after involving several sectors, namely, women and child

development, health, food and public distribution, sanitation, drinking

water, rural development, livelihoods, education and agriculture etc. It was

further complemented by other policies such as the National Health Policy

2002, the National Policy for Children, 2013, which provides a strong

foundation for addressing the immediate and the underlying determinants

of under nutrition through both direct interventions and indirect

interventions. The Twelfth Five Year Plan reinforced the commitment to

preventing and reducing child under nutrition (underweight prevalence in

children 0 - 3 years), articulated as one of its core Monitorable Targets,

binding multiple sectors and States to collective action.

Over the past few years, several programs and schemes with the

potential to improve the current nutritional situation of the country have

been launched and expanded. Several of these schemes are as follows:

National Rural Health Mission (2005 - 06).

Mahatma Gandhi National Rural Employment Guarantee Scheme

(2005 - 06).

Janani Shishu Suraksha Yojana (JSSK) 2011.

Janani Suraksha Yojana (2006 - 07) and Midday Meals (2008-09).

Integrated Child Development Services Scheme (2008 - 09).

National Rural Livelihood Mission (2010 - 11).

According to the UNICEF, India positioned at the 10th rank among

countries with the highest number of underweight children, and at the

17th rank for the highest number of stunted children in the world. On

comparing to 2005 - 06, the underweight in children has been reduced

from 42.5% to 35.7 % during 2015 - 16 (Figure 2). Further, stunted growth

also has been reduced during the above-mentioned period.


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Figure 2. Comparison on Nutrition status in 2005-06 and 2015-16 Source: National Family Health Survey 3 & 4.

The Government has accorded high priority to the issue of under

nutrition and is implementing several programs of different Ministries/

Departments through State Government/ UT Administration, which have

the potential to improve the current nutritional situation in India. The list

of programs pertaining to it is presented in Table 3.

Table 3. List of programs initiated by Government of India to address the

under nutrition

Target

Group Schemes Major Services from Schemes

Pregnant

and

Lactating

Mothers

Integrated Child

Development Scheme

ICDS

ICDS: Supplementary nutrition, counselling

on diet, rest and breastfeeding, health and

nutrition education.

Indira Gandhi

Matritva Sahyog

Yojana IGMSY

Conditional Maternity Benefit

Reproductive Child

Health RCH-II,

National Rural Health

Mission (NRHM),

Janani Suraksha

Yojana (JSY)

NRHM: Antenatal care, counseling, iron

supplementation, immunization,

transportation for institutional delivery,

institutional delivery, cash benefit, postnatal

care, counseling for breast feeding and

spacing of children etc.


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Target


Children (0

- 3 years)

ICDS ICDS: Supplementary nutrition, growth

monitoring, counseling health education of

mothers on child care, promotion of infant

and young child feeding, home based

counseling for early childhood stimulation,

referral and follow up of undernourished and

sick children.

RCH-II, NRHM NRHM: Home-based new born care,

immunization, micronutrient

supplementation, de-worming, health check-

up, management of childhood illness and

severe under-nutrition, referral and cashless

treatment for first month of life. Care of sick

newborns, facility-based management of

severe acute malnutrition and follow up.

Rajiv Gandhi

National Creche

Scheme

Rajiv Gandhi National Creche Scheme:

Support for the care of children of working

mothers.

Children (3

- 6 years)

ICDS ICDS: Non-formal preschool education,

growth monitoring, supplementary nutrition,

referral, health education and counseling for

care givers.

RCH-II, NRHM NRHM: Immunization micronutrient

supplementation, deworming, health check-

up, management of illnesses and severe under

nutrition

Rajiv Gandhi

National Creche

Scheme

Rajiv Gandhi Creche Scheme: support for

care of children of working mothers

School

going

children (6 -

14 years)

Mid-Day Meals

(MDM),

Mid-day meal: Hot cooked meal to children

attending school.

Sarva Shiksha

Abhiyan (SSA)

SSA: Support knowledge dissemination by

inclusion of Nutrition related topics in

syllabus, curriculums for formal education,

school health check-up, mid-day meal.

Adolescent

Girls (11 -

Rajiv Gandhi Scheme

for the Empowerment

RGSEAG: Supplementary Nutrition, Iron

Folic Acid supplementation, vocational


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Target


18 years)

(RGSEAG), Kishori

Shakti Yojana

adolescent girls.

NRHM NRHM: Weekly iron and folic acid

supplementation

Total Sanitation

Campaign

(TSC)/Nirmal Bharat

Abhiyan (NBA)

TSCINBA: Access to sanitation facilities

National Rural

Drinking Water

Program (NRDWP)

NRDWP: Access to safe drinking water

Adults and

Communiti

es

MNREGS, Skill

Development

Mission, Women

Welfare and Support

Program, Adult

Literacy Program,

TPDS, AAY, Old and

Infirm Persons

Annapuma, National

Rural Drinking Water

Program (NRDWP)

and Total Sanitation

Campaign (TSC).

MNREGS: Employment Guarantee for 100

days per financial year for adult member of

rural household.

NRLM: Poverty alleviation in BPL families

through self-employment.

TPDS: Food subsidy for rice, wheat etc.

NIDDCP: Promotion of use of iodized salt

NFSM: Increased production of rice, wheat and

pulses.

RKVP: Supports states for creation of

infrastructure, essential to catalyze the existing

production of food grains.

Source: NITI Aayog (2017)

One of the major achievements in ensuring food for all people, is

implementation of National Food Security Act, 2013 in the country. The

nutritional standards for different age groups under National Food

Security Act is presented in Table 4.


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Table 4. Nutritional standards under National Food Security Act

Beneficiaries Items Calories (Kcal) Protein(g)

Children (6 months to 3

years)

Take Home

Ration

500 12-15

Children (3 to 6 years) Morning Snack

and Hot -

Cooked Meal

500 12-15

Children (6 months to 6

years) who are

malnourished

Take Home

Ration

800 20-25

Lower primary classes Hot -Cooked

Meal

450 12

Upper primary classes Hot- Cooked

Meal

700 20

Pregnant women and

lactating mothers

Take Home

Ration

600 18-20

Source: PIB (2015)

The National Nutrition Mission (2017), technology driven platform,

will be considered as an apex body responsible for monitoring,

supervising, fixing targets and guiding nutrition related interventions

across the ministries. It aims further to reduce stunting levels in India to

25 per cent by 2022. The mission intends to use technology at the core for

real time monitoring of services delivered by Anganwadi workers,

frontline community health workers of ASHAs and auxiliary nurse

midwives. Further, it aims to promote use of smart phones by Anganwadi

workers and tablets by their supervisors in mapping nutrition or growth

levels of beneficiaries.

Government also issues instructions and imparts various training

programs to rural centers on mal-nutrition, mother’s milk feeding to

infants, food borne illness, nutrient deficiency disorders, food handling

and hygiene in home and also in schools regarding selection of location of

food preparation Anganwadi for children in schools, food procurement

center, storage of food items, water supplies, drainage process and waste

disposal, cleaning process, pest control and personal hygiene as a part of

nutrition programs.

In order to meet the deficiency of Vitamins and micro nutrients in the

country, a new scheme was implemented namely “Food Fortification”.

FSSAI has taken the lead in large scale fortification of staple foods like


99

edible oil, double fortified salt, wheat flour, rice and milk, by addition of

key vitamins such as Vit B12, Vit A and D, micro nutrients viz., iron and

folic acid to staple foods and released standards on food fortification in

October, 2016 and notified +F logo. Department of Food and Public

Distribution has taken imitative on supply of fortified rice through PDS on

Pilot scale, which will be further implemented in the country.

11. Conclusions

Government of India has undertaken various measures to address food

and nutrition security and safety in the country. It has made significant

achievement in the average production of cereals and pulses. The

undernourishment has also declined from 23.7 percent during 1990 - 92 to

15.2 % during 2015 - 16. The nutritional intake from the Public

Distribution System (PDS) has provided a significant safety cover to the

people across the states in India by filling the nutritional gaps to attain the

levels of energy and protein. With the worsening lifestyles need arose to

include survey parameters related to hypertension and blood sugar level

in men and women. Government of India through FSSAI strictly monitors

the food consumed by people and has introduced various guidelines and

norms at various levels of food supply chain aiming to achieve safe food

for the people.

References

Paul, B., Patel, P., Malik, J. S., and Gera, V. (2015). Food Safety: The Indian Perspective.

National Journal of Community Medicine, 6(2): 286-288.

DFPD. (2013). Department of Food and Public Distribution. Annual Report, New

Delhi. Pp 82.

GFSI. (2019). Global Food Security Index: India, The Economist.

https://foodsecurityindex.eiu.com/. Accessed on 15th January, 2020.

Motarjemi, Y., and Kaferstein, F. K. (1997). Global estimation of food borne diseases.

World Health Statistics, 50: 5-11.

NFHS - 3 & 4. (2015). National Family Health Survey, Government of India.

http://www.rchiips.org/nfhs/. Accessed on 10th January, 2020.

NNM. (2017). National Nutrition Mission, Government of India. http://vikaspedia.in/.

Accessed on 5th December, 2019.

NFSUN. (2018). National Food Security – United Nations in India.

https://in.one.un.org/. Accessed on 10th January, 2020.


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NFSA. (2013). National Food Security Act, Department of Food and Public

distribution. http://www.dfpd.gov.in. Accessed on 5th January, 2020.

NITI Aayog. (2017). Nourishing India, National Nutrition Strategy-Government of

India, New Delhi. Pp. 112.

PIB. (2015). Press Information Bureau, Government of India, Ministry of Human

Resource Development. Available online at https://pib.gov.in/newsite/.

Accessed on 21st December, 2019.

Sara, M. P. (2013). Assessing the applicability of currently available methods for

attributing foodborne disease to sources, including food and food commodities.

Foodborne Pathogens and Disease. 10(3): 206-213.

WHO–FERG. (2015). World Health Organization - Foodborne Disease Burden

Epidemiology Reference Group. WHO - Estimates of the global burden of

foodborne diseases, Switzerland. Pp 222.

WHO. (2019). World Health Organization. https://www.who.int/. Accessed on 19th

December, 2019.


Chapter 7


and Policy Perspectives in Maldives

Shaufa Shareef

Maldives Food and Drug Authority, Maldives


Abstract

The agriculture industry has been growing in recent years in Maldives.

However, food depends mainly on imports, and 41% of food was imported from

SAARC countries in 2018. Food safety has been a major challenge in the

country because of the lack of a strong regulatory framework. Maldives is

committed to implementing food safety standards that comply with

internationally accepted standards. Food safety in Maldives is regulated by

multiple bodies, which has the potential to create confusion and overlapping

mandates. The National Food Safety Policy has therefore outlined the roles of

various stakeholders in food safety to increase collaboration between regulatory

bodies. Maldives is also focusing on improving public awareness through mass

media and social media. Regional support of such projects, as well as support for

strengthening technical and analytical capacity, would be beneficial for the entire

region. In order to remain relevant in the modern global food chain, countries

within this region must have the capacity and regulatory framework to maintain

internationally acceptable levels of food safety.

Keywords: Food safety management, capacity, food chain, food policy

1. Introduction

Food safety is a major concern and challenge in South Asian countries. In

the process of addressing this challenge, SAARC Human Resources

Development Centre (SHRDC), Islamabad, Pakistan, in conjunction with

the Department of Higher Education, Ministry of Human Resource

Development, New Delhi, India, organized a three-day workshop to

discuss the food safety situation in South Asia in 2014. The main issue



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that was highlighted during the program was the lack of uniform and

region-specific food safety standards. It was therefore decided that the

food safety standards of SAARC member countries would need to be

reviewed and updated. Some constraints highlighted were: there was no

coordinated mechanism to survey food safety, and that a regional food

safety database and rapid alert system needs to be developed; lack of

awareness in the region regarding general food safety and hygiene; weak

network of authorized, accredited laboratories and identification of a

Nodal Centre of Excellence; and lack of hygiene and sanitation in the

street food vendor sector.

To address these challenges the program made the following

recommendations: i) Make a Memorandum of Understanding between

SAARC countries to strengthen and harmonize regional food safety

systems; ii) Introduce a regional web portal for networking of food safety

activities, standards, laws, issues and recalls; iii) Establish specific

standards regarding street foods, hotels and restaurants; iv) Provision of

certified reference materials; v) Implement yearly training programs; vi)

Conduct awareness programs for the general public (stakeholders, street

vendors, restaurants, journalists, women activists, school teachers,

religious organizations, hospitals, and farmers) through mass media; vii)

Establishment of consumer forums for the discussion of food safety, food

safety programs for school-aged children; viii) Establish national risk

assessment centres; and ix) Establish a SAARC Incubation Centre to

improve linkages between government, industry and academia.

Food safety is essential to health, both individually and to the

community. Food safety can be described as the usage of best practices in

handling, preparing and storing food, in order to ensure that food is not

harmful in nature upon consumption (AIFS, 2019). Inadequate food

safety practices are a major cause of disease, with foodborne diseases

affecting nearly 10% of people globally, and causing 420 000 deaths per

year (WHO, 2019). Moreover, foodborne diseases disproportionately

affect vulnerable groups such as infants, young children, and elderly and

sick people. 40% of those affected by foodborne diseases are children

under the age of five years. In addition to the direct human cost,

foodborne diseases also affect socioeconomic development. These

problems can be particularly severe in developing countries such as

Maldives, where the lack of adequate relevant laws, regulations, and

standards creates a high-risk environment with regard to food safety. In

Shareef: Food Safety: Current Status, Challenge, Opportunity and Policy Perspectives in Maldives

103

addition, high-import countries like Maldives are greatly affected by

lower regional standards. In fact, the South-East Asia region accounts for

over half the global population that becomes infected and dies from

typhoid fever or hepatitis A (WHO, 2015).

2. Maldives Situation on Food Safety

As food safety is directly related to health, indicators of health can be

indicative of food safety and security. The Millennium Development

Goals (MDGs) and the Sustainable Development Goals (SDGs) of the

United Nations have clearly emphasized food safety as one of the major

components for shared prosperity. Maldives has achieved indicators of

many of the MDGs, such as the under-five mortality rate, the maternal

mortality ratio, improvement of drinking water and sanitation facilities,

and the stunting rate of children (MFDA, 2017). However, as the country

develops, modern health problems such as obesity and other lifestyle-

related conditions are increasing. Non-communicable diseases (NCDs)

are now one of the major health problems facing the country. NCDs,

including cardiovascular diseases, diabetes, and cancers accounted for

84% of total deaths in 2018 (WHO, 2018). Of nine identified risk factors

for NCDs, five are related to food safety and/or security. These include

the harmful use of alcohol, salt/sodium intake, raised blood pressure,

diabetes, and obesity. Obesity and high blood pressure are projected to

continue increasing, with both risk factors projected to rise well above

the 2025 global targets (Figure 1).

Figure 1. Trends of selected risk factors for NCDs in Maldives Source: WHO (2018)


104

Maldives is thus committed to achieving the SDGs, which address

such issues. Many SDGs such as SDG-2 (zero hunger), SDG-6 (clean

water and sanitation), SDG-3 (good health and well-being), and SDG-12

(responsibly consumption and production) are highly relevant to food

safety. However, as many of the goals are related to health,

accomplishment of each goal facilitates accomplishment of other goals.

For example, achievement of the above four goals is essential for SDG-8

(decent work and economic growth) and SDG-4 (quality education), as a

healthier population will be more productive. The combination of quality

education and decent work and economic growth will facilitate SDG 1

(no poverty). The combination of these SDGs is essential for SDGs 5, 10

and 16, which promote gender equality, reduced inequalities, and peace,

justice and strong institutions, respectively. Goals linked to

environmental protection are essential for increasing and maintaining

food production, which is essential for food security. Such goals include

SDGs 7, 9,11, and 13-15, which promote affordable and clean energy,

industry, innovation and infrastructure, sustainable cities and

communities, climate action, life below water, and life on land,

respectively. Accomplishment of all above-mentioned goals will be

facilitated by SDG 17 (partnerships for the goals), as collaborative

accomplishment will be more efficient. Thus, adequate food safety is

essential to achieve all SDGs.

Maldives has historically lacked natural resources in many areas,

including viable land for mass production of agricultural goods.

Therefore, the agriculture industry in Maldives, except for traditional

methods of fishing, has only recently begun to mass-produce goods with

the advent of technological and socioeconomic advances in farming. The

majority (approximately 95%) of food in Maldives is therefore imported

(MFDA, 2017). These imports are often carried out on a small-scale level

by local businesses, which do not necessarily employ personnel trained

in food safety. Moreover, although local food industries are continuously

developing, personnel in these industries that produce, handle, and

distribute food are not necessarily trained in food safety. There is also a

high prevalence of import of market-picked goods, which creates

difficulties in risk analysis and quality assurance due to a lack of

adequate pre-border controls. Pre-border controls can be improved

greatly by regional cooperation. In addition, lack of testing capacity leads

to inadequate border control, as necessary analyses often cannot be

conducted on imported products.


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Food safety in Maldives is regulated by multiple bodies, as shown in

Figure 1. Regulation is conducted partly on an incident-based system,

with some exceptions. That is, while some high-risk products are

regulated upon import, many are regulated following an incident or

complaint. This system, while not ideal, is currently in place due to

inadequate levels of technically competent personnel and supporting

laws and regulations to regulate food safety on a more complete basis.

However, the Maldivian government has begun implementing an

updated scheme for improving and regulating border-controls.

3. Maldives Statistics on Food Safety

Maldives is a small country in terms of both geography and population.

The estimated population of Maldives in 2019 is 530 953, with a growth

rate of 2.96% (WPR, 2019). The total habitable land area is 29800 hectares

(CIA, 2019). Moreover, this area is distributed across 1192 islands, and

the population is divided amongst 200 of these islands. Historically,

funding, resources and development have been concentrated to the

capital city, Male’. Therefore, many people from other islands migrate

there for improved education and job opportunities. Thus, the population

density in the Greater Male’ Area is unusually high, as about 1/3rd of the

population live in this area. This increases the risk of foodborne diseases,

as more cases of foodborne disease can result per contaminated food than

in a less congested area. No specific statistics on foodborne diseases in

Maldives are currently available. However, acute gastroenteritis or

diarrhea, which can be used as an indirect measure of foodborne disease.

was found to be the third most common communicable disease in

Maldives over the five year period 2011-2015, with 30442 cases in 2015

alone (Ministry of Health, 2016).

One of the major focuses of the government in recent years has been

expanding habitable land area through land reclamation and

infrastructure projects. Moreover, as resources are concentrated mainly

in the Greater Male’ Area, it is difficult to monitor food safety in more

remote islands. Thus, there is a measure of inequality in food safety and

security depending on the region. As the agriculture industry in

Maldives is relatively recent in terms of mass products, the majority of

food in Maldives is imported. India is the predominant country from

which food imports are obtained. SAARC countries combined accounted

for 93.5 kilotons and 2325 kL of food imports, or 41% of all food imports

to Maldives in 2018 (Maldives Customs Service, 2019).


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4. Best Food Safety Practices

4.1. Regional

Maldives is a member of the World Trade Organization (WTO), as well

as organizations that set food safety standards; specifically, the Codex

Alimentarius Commission (CAC), the World Organization for Animal

Health (OIE), and the International Plant Protection Convention (IPPC).

The majority of Maldivian standards and guidelines are based on the

standards of the above organizations. However, Maldives has created

country-specific standards, guidelines and regulations to combat specific,

urgent food safety issues currently facing the country.

Food safety in Maldives is not currently governed by a specific law.

Instead, it is governed by components from the Consumer Protection Act

(Act No. 1/96), the Public Health Act (Act No. 7/2012), the Fisheries Act of

the Maldives (Act No. 14/2019), the Act on Controlling Pesticides Used in

Agriculture (Act No. 21/2019), and the Parent Act (Act No. 6/2008). A

specific Food Bill has been drafted but has not yet been ratified. Some

regulations have been implemented to regulate certain high-risk aspects

of food safety. These include the General Regulation for Food

Establishments and Services, the Food Advertisement Regulation, the

Regulation on Import, Produce and Sale of Breast Milk Substitutes in

Maldives, the Regulation on Carbon Monoxide Treated Fish, the

Regulation for Hygiene Standards of Food Services, and the Consumer

Protection Regulation. Furthermore, multiple standards have been

developed in accordance with international texts. These include the

National Standard for Labelling Pre-packaged Food; National Standard

for Analysis and Sampling; Standard for Handling, Transport and

Storage of Food; National Standard for Bulk Transportation and Storage

of Drinking Water; National Standard for Fish Treated with Carbon

Monoxide; and General Principles of Food Hygiene.

If a country-specific standard has not been developed, Maldives

follows the guidelines, codes, and standards for food safety detailed by

the CAC. The development of standards where internationally accepted

global standards exist is an unnecessary expenditure of time, labour, and

finances. However, as mentioned in the previous conference, there may

be a need for region-specific standards in areas where the Codex is

currently lacking. This is because certain foods or practices are common

in this region, but do not have specific standards outlined by the CAC

because such foods and practices are not common internationally. For


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such issues, standards need to be developed that are, at minimum, of

equal strength to the most relevant CAC texts. Such standards can be

developed by the Codex Coordinating Committee for Asia (CCASIA).

For example, the previous conference outlined the need for a specific

standard for street-vended food. The Regional Code of Hygienic Practice

for Street-Vended Foods in Asia (CXC 76R-2017) was then developed in

2017 by CCASIA. Similarly, CCASIA has developed standards for region-

specific products such as gochupang, fermented soybean paste, edible

sago flour, chilli sauce, tempe, non-fermented soybean products, and

laver products. Thus, the best regional food safety practice should be

those that, while specific to the needs of the region, are also compliant

with established and accepted international practices, and are developed

by globally recognized food safety organizations.

4.2. Global

Globalization of the food industry has led to an increasing need for

countries to create food safety systems that comply with internationally

recognized standards. This is essential to ensure food safety for both the

country’s residents and international consumers. As previously

mentioned, Maldives is a member of the CAC, which creates

internationally approved food safety standards. These standards are

considered the minimum acceptable level of food safety standards that

should be followed in Maldives. In addition, the International

Organization for Standardization (ISO) has created a system of

internationally applicable standards for food safety management (ISO

22000: 2018). These standards can be applied to any organization at any

position in the food chain, regardless of size. In addition, ISO has

developed more than 1600 standards relevant to the food sector. These

standards cover many aspects in the food sector, from general food

standards to specific standards for certain high-risk foods, as well as

aspects such as microbiology.

Multiple countries have also created their own food safety standards,

which can be more stringent than those established by international

organizations. These standards tend to be developed as suited for

country-specific needs. For example, the US FDA ratified the Food Safety

Modernization Act (FSMA) in 2011 (FDA, 2019). This act prioritizes

prevention of foodborne diseases over treatment. The FSMA adopted the

implementation rules: i) Accredited Third-Party Certification; ii) Current

Good Manufacturing Practice and Hazard Analysis and Risk-Based


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Preventive Controls for Human Food; iii) Current Good Manufacturing

Practice and Hazard Analysis and Risk-Based Preventive Controls for

Food for Animals; iv) Foreign Supplier Verification Programs; v)

Mitigation Strategies to Protect Food Against Intentional Adulteration;

vi) Sanitary Transportation of Human and Animal Food; vii) Standards

for the Growing, Harvesting, Packing, and Holding of Produce for

Human Consumption; and viii) Voluntary Qualified Importer Program.

These rules ensure that food safety is maintained at all stages in the food

chain, from production to consumption.

Similarly, Canada ratified the Safe Food for Canadians Act in 2012

(CFIA, 2017). This act was created partly to consolidate existing food

safety acts. Before this, food safety in Canada was regulated under

multiple different statues, such as the Food and Drugs Act, the Fish

Inspection Act, the Meat Inspection Act, the Canada Agricultural

Products Act, and the Consumer Packaging and Labelling Act. This

earlier system is similar to the current system in Maldives, where food

safety is regulated under multiple different statutes and regulations, not

all of which are specific to food. Thus, Maldives would benefit greatly

from the implementation of a specific Food Act, as has been proposed

previously. This act was also created to update the existing legislations,

by including new prohibitions against tampering and deceptive

practices, as well as by improving traceability and import controls.

In the European Union (EU), the General Food Law and Regulation

No 178/2002) was ratified in 2002 (EFSA, 2002). This regulation aimed to

separate risk assessment and risk management. Risk assessment, which is

the mandate of the European Food Safety Association (EFSA), involved

providing evidence-based, scientific opinions and advice on food safety,

as well as other relevant issues. The advice provided by EFSA is then

used to inform policy and legislative decisions. Risk management is the

process of making policy decisions or creating legislation on food safety.

This is the mandate of the European Commission, the European

Parliament, and the competent authorities of the Member States. The

separation of risk assessment and risk management reduces bias by the

risk assessor, who may otherwise be inappropriately focused on

providing advice that can be feasibly implemented, which could lead to

inaccurate risk assessment. A similar system exists in Australia and New

Zealand (FSANZ, 2019).


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Each of these food safety systems has advantages that could be

adapted while developing region-specific food safety standards for

SAARC countries. It is important that any region-specific standards

comply with internationally recognized standards, such as those

established by the CAC and ISO. This is because these standards are

developed using highly researched, evidence-based scientific advice from

a variety of international sources. Thus, such standards will be essential

in ensuring that food safety is adequate in this region. Moreover,

implementing internationally recognized standards is essential from an

economic point of view. As the world population grows and the food

industry becomes increasingly globalized, food products consistently and

repeatedly cross international borders. Any countries that are involved in

the business of exporting food must, therefore, comply with the food

safety regulations of the importing country. Thus, adopting

internationally accepted standards is the only way forward for exporting

countries to remain relevant in the growing international food industry.


In addition to the direct human cost of inadequate food safety in the form

of foodborne illnesses, food safety also has a major role in economics.

Unsafe food cost 33 million disability-adjusted life years in 2010 and costs

approximately USD 95 billion in lost productivity annually for low-and

middle-income economies (FAO, 2019). Economic losses can be in the

form of direct causes, where the treatment of foodborne diseases leads to

increased expenditure by the healthcare system. In Maldives, most

aspects of public healthcare are covered by the government through the

Aasandha Scheme. Therefore, inadequate food safety leads to a greater

economic burden on the country, as the government must bear the cost of

treating foodborne diseases. This, in turn, reduces the level of healthcare

available to the general population.

Inadequate food safety can have multiple indirect economic costs.

Various contaminants can cause a variety of long-term health problems

in addition to the direct health problems caused by foodborne diseases.

For example, microbiological contamination can lead to severe health

problems such as haemolytic uremic syndrome or hepatitis. Furthermore,

chemical contaminants can cause a variety of non-communicable

diseases, such as various cancers, and liver and kidney damage.

Moreover, food safety is directly linked to food security. Inadequate food


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safety and food security can, therefore, lead to a variety of non-

communicable diseases (NCDs). The cost of treatment of such conditions

would also need to be borne by the government. These problems can

thus also cause major economic losses. Moreover, additional indirect

economic costs will arise as the industry may lose a productive worker

due to long-term disabilities caused by such conditions. This will also

result in a direct economic cost to the consumer, as they may experience

reduced wages due to their disability. Thus, steps must be taken to

ensure adequate food safety for the entire population, to reduce the

direct health and economic costs of unsafe food.

Further to the direct and indirect economic costs of foodborne

diseases resulting from inadequate food safety management, there may

also be economic costs in the form of food losses. As previously

mentioned, many establishments in the Maldivian food chain do not

employ any personnel trained in food safety. Thus, the level of food

safety is inadequate at many points in the national food chain, such as

during farming, import, processing, distribution, and food vending. This

can result in high levels of food losses. As food safety is not maintained

at multiple stages in the food chain, the safety and security of the

consumed food product will be reduced, increasing the amount of food

that will need to be disposed of due to inadequate food safety. Moreover,

if there are repeated incidents of inadequate food safety, consumers are

likely to increasingly lose trust in the food industry and may begin to

dispose of food that they suspect to be inadequately safe, regardless of

scientific evidence. This will have a direct economic cost to both food

businesses and consumers. Food losses also have a major role in poverty,

as food security will decrease with food safety. This, along with

increasing prices of safe food due to food losses, will cause consumers to

gravitate towards less nutritious, insecure, and unsafe foods. The

consumption of these foods would then increase the risk of various food-

related diseases and thus exacerbate poverty.

Economic costs may also arise when inadequate food safety impedes

trade. There are trade barriers to exporting food from countries where

food safety systems are not well managed to countries with robust food

safety systems. In Maldives, where the main export is fish and fish

products, factories that export to the EU must comply with European

food safety legislation. Thus, all export factories are accredited under ISO

22000 and EU Guidelines. It is essential that this level of food safety is


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maintained within the country and the region to improve and maintain

global trade. This is because mistrust by consumers in the importing

country can decrease demand for food products from the exporting

country, and thus impede trade.

Another potential economic cost of inadequate food safety is the

effect on tourism. If, as mentioned above, a country or region has

developed a reputation for unsafe food, this will increase mistrust and

therefore impede tourism. Tourism is the largest contributor to the Gross

Domestic Product (GDP) of Maldives. In fact, in 2017, tourism

contributed to 23% of the GDP and accounted for 31.8% of government

revenue (Statistics and Research Section & Ministry of Tourism, 2018).

These economic costs, therefore, have the potential to be devastating to

Maldives. It is therefore essential that both the country and the region

achieve and maintain internationally acceptable levels of food safety.


The National Food Safety Policy 2017-2026 (Policy/23-MoH/2017/02) was

initiated in 2017 and is currently being implemented throughout the

following ten years (MFDA, 2017). This policy outlines methods by

which food safety may be ensured from microbial, chemical and physical

hazards, at all stages of food production. It was developed with the

consultation of various stakeholders, as well as the support of the WHO.

It focuses on five pillars of food safety control management, which are

food law; regulation and standards; inspection services; laboratory

services; monitoring, and training. This policy address the mandates of

the various stakeholders involved in food safety in Maldives.

The National Food Safety Policy relies on promoting safe, sustainable

practices, and restricting unsafe practices, at all stages in the food chain,

including production, import, processing, retail, and services. The

Scheme for Food Importation into Maldives details the mechanism by

which food import can be regulated in a risk-based manner.

For cases of noncompliance, traceability and recall systems should be

well-established. Furthermore, to reduce the burden of routine work by

staff of regulatory bodies, such work should be automated as much as

possible. The roles of different stakeholders should be clearly defined,

and stakeholders should work collaboratively to implement these

policies. Relationships of regulatory bodies with consumers and

businesses should be strengthened. Public awareness should be


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improved by including food safety issues in school, college and

university syllabi. Food safety research should also be conducted

regarding the general Maldivian diet. These practices should be

supported by developing and implementing modernized, harmonized

legislation. These legislations should be maintained by monitoring and

surveillance programs. Analytical and technical capacity of relevant

personnel and equipment should be strengthened and maintained, to

support implementation of such legislation.

7. Challenges and Opportunities on Food Safety

The main challenge encountered by the food safety control system is the

lack of a strong regulatory framework. The first two pillars of food safety

control management, which are food law, and regulation and standards,

cannot be properly implemented as there is no ratified, food-specific law.

Because of this, although regulations and standards have been created,

there are issues with enforcement, as penalties must be implemented

under the Consumer Protection Act rather than under a specific Food

Act. This also affects the other pillars of food safety, as the lack of a food-

specific law reduces economic impetus for strengthened laboratory

services, monitoring, training, and inspection.

Another major issue is the fact that food businesses are not required

to employ any trained personnel to monitor food safety. This has led to

employment of untrained personnel, which has resulted in unsafe food

preparation practices. This is an opportunity to work towards UNDP

SDG 4: Quality Education. In conjunction with WHO and Maldives

Polytechnic, MFDA is developing a course that will focus on training

existing personnel in the food industry in essential aspects of food safety.

This course will provide untrained personnel with access to affordable,

equitable, and lifelong learning, and make it possible for food businesses

to employ at least one qualified staff to monitor food safety.

As the country develops and the population and economy grows, the

food industry also develops. The food safety control system is currently

unable to meet this growth. It is also difficult to regulate the newly

emerging market for the sale of food online, particularly via social media.

As the food industry develops, new technologies in processing and

packaging have emerged, and regulatory bodies in Maldives do not

currently have the capacity to fully regulate such technologies.


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Another issue is the high consumption of unnecessary food

supplements amongst young people. There are currently no laws to

regulate food supplements, and supplements are registered voluntarily

at the MFDA. Many supplements are sold with misleading health claims,

which may or may not be substantiated. Maldives is lacking in both

regulatory framework and analytical and technical capacity to combat

this issue. The high penetration of internet and social media has also

increased the amount of misleading information, unethical

advertisements, and unverified online articles available to the public.

Thus, awareness campaigns have been planned and are in the process of

being implemented to educate the general public on food safety and the

safe usage of food supplements.

There is a lack of knowledge amongst many personnel in the

agriculture industry regarding the safe usage of pesticides. Furthermore,

even farms that use ostensibly safe pesticides may use them in excess of

the recommended level, which can cause them to accumulate to

dangerous levels. MFDA, with the support of WHO, is currently

conducting a project to identify the amount of pesticide residue in

commonly grown produce in the Maldives. The outcome of this project

can be used to educate both producers and the general public on safe

pesticide usage. Farms can register with MFDA under the GAP scheme,

but presently, only one farm has registered. There are opportunities in

this area to educate personnel in the agriculture industry on good

agricultural practices. This will improve public awareness and promote

farms that comply with good agricultural practices, which is

advantageous from both an educational and economic perspective.

Antimicrobial resistance in food is another urgent issue that is

difficult to combat. Maldives has established the National Action Plan

For Containment of Antimicrobial Resistance (MFDA, 2017). This plan

includes policies to address antimicrobial resistance in food. However,

due to the lack of testing capacity for veterinary drug residues, food

containing resistant microorganisms or antimicrobial drug residues can

easily cross international borders and spread to Maldives. Laboratory

testing capacity needs to be increased to address this issue.

The unique geography of Maldives presents multiple challenges to

food safety. As many resources are concentrated in the Greater Male’

Area, it becomes difficult to regulate food safety in remote regions. Food

safety in such regions is governed by public health workers stationed in


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each island, and such workers may not have adequate food-safety

specific technical knowledge, equipment or support to effectively work,

especially in rural settings. Furthermore, there are challenges in safe

transportation, storage and handling of food. Much of the food that is

transported to and stored and handled in remote regions is not done so

with adequate food safety measures in place. This creates inequality

between regions.

Climate change is another major issue facing food safety and security

in Maldives. As a chain of low-lying islands, where the average altitude

is less than 2 m above sea level, Maldives is unusually vulnerable to

climate change and rising sea levels (CIA, 2019). Extreme weather

conditions caused by climate change are likely to cause major disruption

to the local agriculture and fisheries sector in the country.


8.1. Research and Development

Although some research has been conducted on specific Maldivian foods

such as Rihaakuru, there is a general lack of adequate scientific research

into the Maldivian diet. Baseline studies need to be conducted on

foodborne diseases and their impact on public health and the economy.

In addition, an essential and urgent area of potential research regarding

food safety is a Total Diet Study. This would allow identification of

problematic areas in both food security and food safety, and provide data

on the effect of additives, fertilizers, pesticides, veterinary drug residues,

and natural toxins on the population. However, as Maldives does not

currently have the necessary laboratory services to carry out such a

research project, strengthening available laboratory services is also an

important area of development. In lieu of a Total Diet Study, preliminary

research could be conducted on the Maldivian diet by a combination of

surveys of the general populace and assessment of nutritional

information on product labels.

Research and development (R&D) including risk assessment for

microbiological and chemical contaminants in food is a crucial task.

Further research priorities need to be identified with the consultation of

the Maldives National University and other relevant stakeholders.

Research capabilities also need to be developed in terms of laboratory

equipment and trained personnel. Currently, research projects are being

conducted by MFDA with the support of WHO to identify food safety


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and security in commonly consumed food items in Maldives, as well as

to identify pesticide residues in commonly grown fresh produce. Further

development of analytical capacity would enable more frequent and

complete research into such topics. In addition, research projects have

been planned to conduct a Total Diet Study, as well as to investigate

high-risk issues that are likely to arise specifically in the Maldives, as

outlined in the National Food Safety Policy.

8.2. Policies and Extension Services

The National Food Safety Policy is a modernized, evidence-based

document that outlines the basis of food safety policies in Maldives

(MFDA, 2017). This document should be the basis of any additions and

extensions to food safety policies in Maldives. As this document is

planned to be implemented throughout a ten year period, from 2017 to

2026, the items outlined in this document have not yet been fully

implemented. Thus, the policies and extension services that have not yet

been implemented are the best recommendations to promote and adopt

food safety in Maldives.

As the major issues in Maldives in implementing adequate food

safety standards are related to the lack of regulatory framework and

technical and analytical capacity, as well as inadequate numbers of staff,

it is difficult to implement some of the policies outlined in the National

Food Safety Policy. The most essential recommendation for promoting

food safety would be the development of a stronger regulatory

framework and ratification of the Food Act. This would be a major

achievement and would allow stakeholders to regulate food safety on a

legislative basis.

Analytical and technical capacity of Maldivian services also needs to

be strengthened. Traceability and recall systems also urgently need to be

developed, and the relationships between regulatory bodies, consumers

and businesses need to be improved.

There are currently programs aimed at increasing public awareness

through both mass media and social media. However, it is difficult to

quantify community engagement with mass media, and social media

awareness campaigns have not yet been implemented to the desired

level. Improvement of awareness campaigns is a high priority, as this is

one of the most effective methods of self-regulation. In this regard, there

are opportunities here to strengthen food safety and to educate the


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general public. As Maldives is developing at a fast rate, there are now

many consumers who demand safe food and are willing to pay

increasing prices for the guarantee of safe food.

As internet services are now available in all parts of the country, and

most of the population has access to social media, there is a huge

opportunity to conduct cost-effective, wide-reaching awareness

campaigns using these tools.

9. Conclusions and Way-Forward

In conclusion, there are many areas in Maldives where food safety is

inadequate. The lack of strong regulatory framework and technical and

laboratory capacity is particularly challenging. In collaboration with

other SAARC countries, we hope that we can work cooperatively to

implement the policies recommended at the previous conference as

mentioned above in this paper. Specifically, Maldives would benefit

greatly from a regional rapid-alert system and web portal, as a significant

proportion of Maldivian food is imported from SAARC countries.

As Maldives is currently lacking adequate technical and analytical

capacity, regional collaboration in strengthening such areas would be

beneficial. Countries in the region can pool resources to develop a

regional laboratory and procure materials and equipment. In addition, a

fast-track can be developed at border control so that competent

authorities can send perishable samples to the lab without delay.

High priority should be given to increasing awareness on food safety

in the general public as well as specific relevant target groups.

Collaborative development of informative materials, especially those that

relate to region-specific food safety issues, would be both cost-effective

and improve the quality of such materials. This would also facilitate

awareness for the South Asian migrant population in different countries,

who are often heavily involved in the food industry. For those areas

where internationally accepted standards do not exist, Maldives is also

prepared to work collaboratively to establish region-specific standards.

These standards should have similar food safety standards to existing,

internationally accepted texts.

Thus, by pooling the strengths of different countries, such as the high

level of education and public awareness in Maldives, it will be possible to

improve and maintain regional food safety standards so that the entire

region remains relevant in the global food chain.


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References

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CFIA. (2017). Safe Food for Canadians Act. Canadian Food Inspection Agency.

CIA. (2019). The World Factbook. Central Intelligence Agency. Retrieved 07 August

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mv.html

EFSA. (2002). European Food Safety Authority. About EFSA. Retrieved from

https://www.efsa. europa.eu/en/aboutefsa

FAO. (2019). The Future of Food Safety, Food and Agriculture Organization of the

United Nations. Retrieved from http://www.fao.org/3/CA3247EN/ca3247

en.pdf

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dietary-supplements/food-safety-modernization-act-fsma

FSANZ (2019). Food Standards Australia New Zealand. Food Standards Australia

New Zealand.

MFDA. (2017). National Food Safety Policy (2017 - 2026). Maldives Food and Drug

Authority. http://www.health.gov.mv/Uploads/Downloads/Informations/

Informations(69).pdf

Ministry of Health. (2016). Maldives Health Profile 2016. Ministry of Health.

http://health.gov.mv/Uploads/Downloads/Informations/Informations(73).pdf

WHO. (2015). Foodborne Diseases in the WHO South-East Asia Region. World

Health Organization Retrieved from https://www.who.int/foodsafety/

areas_work/foodborne-diseases/infographics_sear_en.pdf

WHO. (2018). Noncommunicable Diseases Country Profiles 2018. World Health

Organization.

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https://www.who.int/en/news-room/fact-sheets/detail/food-safety

WPR. (2019). Maldives Population 2019. World Population Review. http://world

populationreview.com/countries/maldives-population/

https://www.foodsafety.com.au/resources/articles/what-is-food-safety

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https://www.fda.gov/food/guidance-regulation-food-and-dietary-supplements/food-safety-modernization-act-fsma

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https://www.who.int/en/news-room/fact-sheets/detail/food-safety


Chapter 8


and Policy Perspectives in Nepal

Bal Kumari Sharma Khanal1*, Mohan Krishna Maharjan2 and

Rudra Bahadur Shrestha3

1Food Research Officer, Ministry of Agriculture and Livestock Development,

Singhadurbar, Kathmandu, Nepal. Email: [email protected] 2Senior Food Research Officer, Department of Food Technology and Quality Control,

Kathmandu, Nepal. 3Senior Program Specialist (Policy Planning), SAARC Agriculture Center, Dhaka,

Bangladesh. Email: [email protected]


Abstract

Food safety issues have drawn global attention because of increasing consumer

demand for safe and high-quality food with growing public health concerns on

food borne illnesses, international trade and its implications. Nepal, being a

developing country, food chains are non-traceable as compared to developed

countries due to poor execution of food laws and related regulations, besides

limited resources and infrastructure. Due to which, Nepal needs to establish

required infrastructures, implement and update the current legislations and

policies. Every year, Economist Intelligentsia Unit (EIU) publishes Global

Quality and Food Safety Index to measure the food security situation. According

to EIU, Nepal ranked 75th with 47.2 score out of 109 countries in terms of food

quality and safety in year 2015. Furthermore, Nepal’s constitution has secured

rights to food, and rights to access quality goods and services. Besides, Nepal also

has committed to ensure that the food safety policy/regulations will meet the

obligatory requirements of Sanitary and Phytosanitary (SPS) Agreement of the

World Trade Organization (WTO). The SPS Agreement has increased the

pressure on both the government and food industries to intensify their efforts to

improve food safety situation. All these efforts call for developing and

implementing comprehensive food safety policies/legal frameworks in compliance

with the best international practices. In addition, food safety related rules need to

be harmonized with Codex Alimentarius Commission (CAC).

Keywords: Food safety, accreditation, pesticides, food legislation, Nepal


Khanal, Maharjan & Shrestha: Food Safety: Current Status, Challenge, Opportunity and Policy ... Nepal

119

1. Introduction

Food systems are changing rapidly along with rise in world population,

urbanization, and changing in consumer food habits, tastes preferences

that differ in various countries and cultures. Besides, large scaled food

production, availability of the wide range of food products, and growth

of food imports and exports in volume and value too have geared the

changes in food systems. However, access to sufficient amount of safe

and nutritious food required for sustaining life and promoting good

health is challenging. Globally, there has been increasing consumer

demand for safe, high-quality food along with recent public health

concerns due to food-borne illnesses on the one hand, and the ever-

increasing trend of global trade and its challenges in maintaining

hygienic quality food products on the other hand.

The food borne illnesses associated with microbial pathogens, bio-

toxins and chemical contaminants are accountable for a serious health

threat of millions of people in the world. World Health Organization

(WHO) has been actively persuading its member countries to take strong

measures to ensure food safety since half decade. World Health

Assembly (WHA) adopted a resolution in 2000 (Resolution WHA 53.15)

to give high emphasis on food safety. It also emphasized for developing

suitable, integrated food safety systems to reduce the health risk

controlling the entire food chain from primary producers to the

consumers (WHA, 2000). Reports of the WHO indicate that unsafe food

containing harmful bacteria, viruses, parasites, or chemical substances

are responsible for more than 200 diseases ranging from diarrhea to

cancers. Along with these ailments, other food and water borne diarrheal

diseases are taking the lives of nearly 2 million people (including

children) annually. It is estimated that nearly 700,000 children die every

year from unsafe food and water in the South and East Asia, of which

Nepal is also a part (WHO, 2015a; WHO, 2015b; IPS News, 2015).

Increasing trend of food fraud/adulteration and misbranding is a big

challenge as informal food production and distribution systems are

deeply entrenched particularly at the community level in the South and

South East Asia. Rampant use of agrochemicals/veterinary drugs, poor

storage/transportation conditions, poor retail and restaurant practices are

some of the causes for food borne ailments. Besides, other food safety

problems and related risks include chemical and microbiological

contamination of foods (pesticides and veterinary drug residues, non-


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permitted colors, mycotoxins, allergens, heavy metals- mercury, lead,

arsenic, etc.), mad-cow disease, bird-flu, and un-sanitary practices.

Increased use of new production/processing technologies [like nano-

technology, genetically modified organism (GMOs)] and entry of new

products (functional foods, food supplements/nutraceuticals, energy

drinks, etc.) with little knowledge on efficacy/ health implication have

been other major concerns. Street foods and roadside restaurants/

canteens/ party venues are emerging sources of food-borne diseases for a

large proportion of population in urban and peri-urban settings.

Food safety related issues are matter of global concern and in Nepal

is no exception. Nepal, being a member of WTO since 2004, the food

safety issue is a matter of increasing concern and the priority area of the

Government of Nepal (GoN) (Bajgain, 2012). Currently, the main

legislative framework for ensuring food safety in Nepal is the Food Act

1966. This Act was promulgated half a century ago to maintain proper

standards of food by preventing any undesirable adulteration in food

items, or subtraction or extraction of any natural quality or utility from

food. Until now, the traditional system of end-point control where the

final product would be subjected to test by food regulatory authorities is

still prevalent. By now, nearly thirteen Acts and related regulations and

seven government agencies are directly responsible with implementation

of food safety related programs (DFTQC, 2011; Pandey, 2014).

The private food industries and food business operators have also

played some roles by adopting food safety assurance systems in Nepal.

On an average, around 425 food industries are taking new licenses in the

recent years. Among them, only around 40 industries have been adopting

Hazard Analysis on Critical Control Points (HACCP) and International

Organization for Standardization (ISO) 22000 certification by

internalizing the Quality Management System (QMS). However, rest of

the food industries still lack in-house food control systems. The small and

medium scales industries have not been able to show commitment to

food safety. Besides, the private-sector/organization like Federation of

Nepalese Chambers of Commerce and Industry (FNCCI) and the

consumer organizations in the legislative frameworks have been playing

active roles in maintaining food safety. For example, consumer

organization are involved in consumer food safety awareness programs,

involved in food safety policy and food act drafting to provide their

feedback etc., to ensure food safety in food control system, there is a need


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to identify the gaps in major areas, such as governance, legislative

framework, inspection services, and laboratory services/surveillance.

The key governance gaps reflected are: lack of good governance in

required place, outdated laws and regulations, hardly done science-based

screening, inadequate capacity and competency of the testing labs, less

effective isolated risk-based decisions, and absence of a single regulatory

agency and poor coordination among different stakeholders.

In this milieu, this paper has been developed to explore the present

situation of food safety, constraints and challenges, policies and program,

and recommend some major policy interventions to improve the food

safety situation in Nepal.

2. Situation of Food Safety in Nepal

2.1 Global Quality and Food Safety Index: A Nepalese Context

Nepal has poor performance in food safety control system for

international trade due to non-tariff barrier with regard to SPS

requirements and food safety management system certification. Thus,

with utmost urgency, Nepal needs to address many compliance issues

linked with food safety/ standards in both import and export front.

According to Economist Intelligentsia Unit (EIU, 2015), Global Quality

and Food Safety Index of Nepal has been ranked at the 75th position with

47.2 score out of 109 countries in the world (Table 1).

Table 1. Global Quality and Food Safety Index 2015: Rank and Score

Rank/

Score Nepal India Bangladesh Pakistan China Thailand Ghana US

Rank 75 79 102 64 38 61 74 3

Score 47.2 45.3 44.9 53 53 55.5 47.9 86.4

Source: EIU (2015)

Note: Number of countries considered in Ranking: 109; Total score: 100.

Current food safety situation of Nepal is at par with Ghana, and

better than that of Bangladesh and India (Table 1). All of the above

scenarios/factors have compelled the governments and food industries

worldwide to intensify their efforts to improve food safety situation in

consistent with best international practices. Most of the countries from

Association of South East Asian Nations (ASEAN) and South Asian

Association for Regional Cooperation (SAARC) regions, have decided


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not to practice the traditional system of end-point control of the final

products by food control/safety regulatory authorities. Many countries

have delegated the responsibility of food safety control system to a single

authority. There are significant changes in the laws and regulations in

many countries including India, China, US, EU, Japan, Bangladesh,

Vietnam, Philippines, Jordan, Kenya, Nigeria, Ghana, Zambia, Jamaica,

Namibia, Lebanon and Ukraine (GCC, 2015).

A few national policies and programs instituted by various sectors

and agencies are trying to address food safety issues in Nepal. The 13th

National Plan (2013-2016), Agriculture Development Strategy (2015-

2035), National Health Policy (2014), National Agriculture Policy (2004),

Agribusiness Promotion Policy (2006), Nepal Trade Integration Strategy

(2010) and 4th National Plan of Action on Human Rights (2014-2019) have

emphasized on food safety.

2.2 Policy and Program Gaps on Food Safety

Major gaps and challenges have been identified in some policies and

legislative frameworks are listed below:

The Food Act 1966 has not been able to totally cover all the areas

that need to be considered while coping up with the

domestic/international risks and challenges in relation to food

safety, production, sales/distributions and consumption of

quality food products, and address some additional food safety

related requirements, such as residues and contaminants.

Different departments/sections of the government have been

implementing many Act/Rules indiscriminately, often

overlapping and contradicting the provisions, for example, Food

Act, 1966 with other Acts like the Consumer Protection Act, 1998,

Animal Health and Livestock Services Act, 1998, Slaughterhouse

and Meat Inspection Act, 1998, and Mothers Milk Substitute

(Control of Sales and Distribution) Act 1992.

The Food Act 1966/ Food Regulation, 1970 have not spelled out a

comprehensive food safety regime. For example, definition of

foodstuff does not include chewing gum, pan parag, tobacco and

tobacco products, alcoholic beverages and drinking water.

Apparently, there is lack of internationally agreed principles like

SPS and code of practices in the farm level.


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The minimum standards for the food products, maximum limits

for new additives, contaminants, food packaging materials,

maximum residue limits (MRLs) for pesticides are yet be fixed.

Labeling requirements are specified for domestically manufactured

foodstuffs. Furthermore, for the imported products, labelling in either

English or Nepali is mandatory and should be easily understandable by

the consumers. The labeling should also meet the Codex Standards, the

internationally accepted code in the food business.

Gaps have been identified in the inspection services:

Food inspection and enforcement activities in Nepal are not risk-

based, and do not cover the entire food chain from farm-to-table.

Inspection services documents address food quality rather than

food safety issues, and sampling and testing are carried out from

food quality point of view only.

Gaps observed in the food laboratory services surveillance:

Central Food Laboratory (CFL) of Department of Food

Technology and Quality Control (DFTQC) is yet to consider the

modernization and upgradation of the existing laboratory

facilities for extending its scope through further accreditation,

particularly in pesticide /veterinary drug residues etc.

Testing services by accredited private laboratories are yet to be

legally recognized.

Several efforts have been made in Nepal for adopting risk-based

approach in food safety assurance (food inspection and surveillance

system). Focused effort is required in adopting risk-based approach and

categorizing food products into high/medium and low risk by food safety

related research in pesticide/ veterinary drug residues, heavy metals,

mycotoxins, microbial contaminants, preservatives, colors followed by

food basket/ dietary pattern surveys are required for setting the

Maximum Residue Limits (MRL) or Tolerance Limits. Since more than a

decade, many multilateral (FAO, WHO, UNIDO, World Bank, WTO) and

bilateral donors (Danida, JICA, EU, PTB/Germany) have been extending

technical and financial assistances to develop competent human

resources and necessary infrastructures. Recently, USAID also has

committed its support through International Food Policy Research

Institute (IFPRI) for the preparation of food safety policy and drafting of

food regulations /standards (IFPRI, 2017).


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2.3 Institutional Arrangement and Food Control System

The DFTQC of Ministry of Agriculture and Livestock Development

(MoALD) is the governmental agency for food control system

enforcement authority of Food Acts/Rules in Nepal. It includes food

inspection services, food control management (Food and feed standards

setting, registration of food processing industries and quality certification

system etc.), laboratory services, other food safety and technology related

information and education, and communication technology (IECT)

related tasks. According to CAC (Codex, 2013), Food Control System

consists of legislation; inspection services; laboratory services for

surveillance/monitoring; information education, communication and

training, and food control management (Figure 1).

Figure 1. Typical Food Control System adopted by Codex Alimentarius Commission Source: Codex (2013)

2.4 Nepal’s Access to WTO: Support for Food Safety

During its accession negotiation for WTO Membership, Nepal had

committed to implement the SPS Agreement by January 2007 (WTO,

2005). In the negotiation, Nepal’s stepwise commitment included to:

Review regulations to ensure they were based on risk

assessments and sufficient evidence to upgrade human resources

in SPS areas.

Develop SPS guidelines before July 1, 2006.

Upgrade Quality Control Laboratories, quarantine systems and

field veterinary systems by January 1, 2007.


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Harmonize the existing standards, guidelines and

recommendations by January 1, 2007.

2.5 Highway Hotel/ Restaurant Inspection and Ranking System

Since last two years, DFTQC has started inspection in highway

hotels/restaurants conducting grade sticker campaign with the support of

International Finance Corporation (IFC) of the World Bank Group. In the

Fiscal year 2013/14, 182 hotels and restaurants at different places namely:

Dhalkebar, Gorusinghe, Chisapani, Kohalpur, Gaidakot were inspected

and graded as excellent, medium and low.

The DFTQC also makes inspection visits to the food and feed

industries with particular reference to: Industry licensing and renewing;

Product packaging and labeling; Premise and surrounding environment

of industry; Processing technology and process flow chart; Production

plant conditions; Raw materials, ingredients and additives used; Storage

condition of raw materials and finished products; and Good

manufacturing and hygienic practices.

2.6 Laboratory Services Surveillance/Monitoring

A national food control program with properly equipped and well

facilitated laboratory, trained and competent analysts are required to ensure

quality safe food. Currently, various government laboratories are involved

in food analysis at different tiers of the government. DFTQC consists of

fairly good laboratory facilities and moderate capacity for analyzing

microbiological contaminants and environmental pollutants in food. DFTQC

analyzes food contaminants such as pesticide residues, veterinary drug

residues, heavy metals, mycotoxins and microbial contaminants,

preservatives, mycotoxins and color in different food products. However,

only limited standards and MRLs values of contaminants are fixed in limited

food items. The contaminants testing performed in laboratories regarding

food safety surveillances/monitoring are as shown in Table 2.


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Table 2. Testing done by Central Food Laboratory: Parameters of

Interest in relation to Food safety surveillances/monitoring

Parameters

Tested Compounds Testing Performed in Products

Pesticide

residues

DDT, BHC, Parathion,

Methyl Parathion,

Malathion.

Tea, Vegetables, Lentil soup

Water, Ginger, Milk products,

Weaning foods, Dry fish.

Heavy Metals Arsenic, Lead, Cadmium. Litto, milk, coffee, soft drink.

Colours Rodhamine B, Mentanil

Yellow, unknown green.

Snacks, ketchups, fruit drinks,

pulses, noodles, cheese

powders, sweets, pickles.

Preservatives SO2, Benzoic acid, Nitrite. Ketchup, meat product, pickles,

sauces, juices.

Mycotoxin Alfatoxin B1, B2,

Grayanotoxin.

Maize, Peanut butter, Feeds,

Corn chips, cereal grits/flour,

spices.

Bacteria

Fecal coliform, Bacillus,

Staphylococcus, Salmonella,

Clostridium

Milk, processed water, meat

and meat products, snack foods,

cereal products, tea, herbal tea,

feed

Miscellaneous

Melamine Milk candy, toffee

Saccharine Carbonated beverages

Formaldehyde Rohu fish

β-lactum (antibiotic residue,

penicillin, amoxicillin) Milk

National Accreditation Board for Laboratories (NABL) India has

accredited CFL in September 2012 for the analysis of few parameters

under ISO 17025. The accreditation activities undertaken at the CFL is as

a reference laboratory and it includes internal audit, calibration, inter-

laboratory comparisons, surveillance audits etc. Now, efforts are on the

way to get accreditation for food pesticides residues. The CFL also has

the responsibility to monitor performance of other regional food

laboratories. Other related laboratories involved in food safety concerns

are Central Veterinary Laboratory, Livestock Quality Control Laboratory

and National Plant Quarantine Program for monitoring of imported and

exported plants and vegetables. Apart from government laboratories,

there are a few private or Non-Governmental Organization (NGO)

operated laboratories which monitor heavy metals and overall quality in

water. The analytical facilities and arrangements for testing food in the

private sector are considered weak.


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2.7 Epidemiological Investigation

Food borne disease can be defined as the illness caused by infections or

toxicity due to consumption of food or water. Food borne disease

surveillance is essential to estimate monitoring process and identifying

priorities. In addition, setting policy to prevent such diseases and their

outbreaks, detection and prevention strategies are also necessary.

Food borne disease surveillance system is virtually non-existent in

Nepal. Although the epidemiological investigation is supposed to be

carried out by the Department of Health Services (DoHS), no such work

has been carried out for determining the causal factors of food borne

disease outbreaks due to lack of specialized laboratory in the hospitals of

Nepal (DoHS, 2015).

2.8 Risk Analysis Based System

Risk based approach in food safety assurance is very important in

modern food inspection and surveillance system. The classical concept of

product-based inspection has now been changed to risk-based inspection

to overcome drawbacks of end–product inspection, monitoring, and

quality evaluation system. In risk-based system, the food products need

to be categorized into high, medium, and low risk products. Similarly,

the processing industries should also be grouped into three categories

according to Critical Control Point Decision Tree of HACCP module.

3. Role of Public Sector, Private Sector and Consumer

Groups in Food Safety

Role of both the public and private sectors is important to establish food

quality and safety systems. The major roles of the government, food

business operators, and consumers in providing safe food for all are

clearly depicted in the Figure 2 (WHO, 1996).

The government agencies play major roles in development of policies

and regulations related to food safety and quality assurance, risk

analysis, establishment/ upgradation of laboratories, food quarantine

system, monitoring industries' operations and consumer awareness.

Similarly, the roles and responsibilities of the private food business

operators (industry/trade) are crucial to ensure food safety in production,

processing or monitoring practices. Thus, the involvement of the

umbrella organization, Federation of Nepalese Chambers of Commerce


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SAFE FOOD FOR ALL

Shared Responsibility

Food legislation and

Enforcement

Advice for

Industry/Trade

Consumer

Education

Information

Gathering and

Research

Provision of

Health-Related

Services

Educated and

Knowledgeable

public

Discriminating and

Selective

Consumers

Safe Food Practices

in the Home

Community

Participation

Active Consumer

Groups

Good practices by

Primary Producers

and Distributors

Quality assurance

and Control of

Processed Food

Appropriate

Processes and

Technology

Trained Managers

and Food Handler

Informative Labeling and Consumer

Education

GOVERNMENT CONSUMER

INDUSTRY/ TRADE

and Industry (FNCCI) is different committees such as Plant Protection

Committee; Nepal Standards Council; Consumer Protection Council;

National Codex Committee; and Nepal Standard Council.

Figure 2. Shared responsibilities of major stakeholders for ensuring "Safe Food for All"

Source: WHO (1996)

General public, as consumers of food products, also play roles in the

food control system. In recent years, DFTQC has launched consumer

awareness programs to educate the consumers for identifying

adulterated products through simple screening test. The DFTQC has

organized these programs in many parts of the country in collaboration

with the Consumer Associations (DFTQC, 2011 and 2013).


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4. Policies and Programs in Food Safety

4.1 Constitution and Fundamental Rights to Food and Food Safety

Right to food is directly related to food sovereignty and food security

(GoN, 2018). Most of the countries have accepted the right to food as

fundamental rights in their constitution. The new Constitution of Nepal

has been accented on the basis of international treaties, practices, and

demand of the time and political consensus in 20 September 2015 (CAS,

2015). The constitution has adapted right to food as a fundamental right

of all people (PART 3 Article 36), which included the following rights:

Every citizen shall have the right to food.

Every citizen shall have the right to be protected from starvation

(lack of food stuffs).

Every citizen shall have the right to food sovereignty by law.

Likewise, the new constitution's Article 44 treats the Right of

Consumers as Fundamental Rights, which states that:

Every consumer shall have the right to access on quality goods

and services.

A person victimized by sub-standard goods or services will have

the right to be compensated as per law.

Right to food and right to access on quality food are the fundamental

rights, which are really important to ensure food safety to the consumers.

4.2 Legislative Frameworks and Institutional Structure in Food

Control System

In Nepal, Food Safety and Quality Control System began from 1961 with

the establishment of the Department of Food. The Department was

converted to Food Research Laboratory in 1965, which in turn had made

efforts in bringing Food Act 1966 and Food Regulation 1970. The primary

responsibility of the enforcement of above Act and Regulation was given

to the Department which later changed its status and name several times

until it is known as the Department of Food Technology and Quality

Control (DFTQC) from 2000.

So far, the Food Act 1966 has been technically amended four times

with the last amendment in 1997; and the Food Regulation has been

amended five times. The Directives are revised five times with last

amendment in 2007. Nearly 12 Acts and regulations, and 7 government


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agencies are directly linked with implementation of food safety related

programs. The Act/Rules and the implementing agencies/enforcement

authorities are given in Table 3.

Recently, a new National Food Safety Policy (2019) has been

approved by the GoN and draft of the Food Safety and Quality Control

Act has been prepared to replace Food Act 1966 to harmonize with

international food standards. Besides, establishment of Food Safety

Authority and National Food Council (DFTQC, 2012; NEFOSTA, 2012;

NCFST, 2014) and the draft Bio-security Policy to integrate all aspects of

human, plant and animal health (FAO, 2014c) protection are in offing.

Nepal became the member of CAC in 1974 in order to establish the

contacts with international agencies involved in the development of food

safety and quality. It has constituted the National Codex Committee in

2004. The GoN has established SPS enquiry point and International Food

Safety Authorities Network (INFOSAN) emergency contact point in

DFTQC. The GoN approves food standards and notify them in Nepal

Gazette. DFTQC is currently acting as the secretariat for the food

standard fixation committee, and Director General DFTQC is the

member-secretary of the committee and Secretary of MOALD is

chairperson of committee.

Table 3. Legislations involved to maintain food safety and implementing

institutions concerning food safety in Nepal

Acts/Rules Implementing Institutes

Food Act 1966, Food Rules 1970. DFTQC.

Consumer Protection Act 1998; Consumer

Protection Rules 2000.

Department of Commerce and

Supply Management (DoCSM)

Local Self-governance Act 1999; Local Self-

Governance Rules, 2000.

Village Development

Committee and Municipalities,

MOALD.

Nepal Standards (Certification mark) Act 1980;

Nepal Standards (Certification mark) Rules 1983.

Nepal Bureau of Standards

and Metrology (NBSM).

Feed Act 1977 and Feed Regulation 1984. DFTQC

Standard weights and Measure Rules 1978. NBSM


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Acts/Rules Implementing Institutes

Animal Health and Livestock Service Act 1998 &

Animal Health and Livestock Service Rules 2000.

Department of Livestock

Services (DoLS)

Animal Slaughter House and Meat Inspection

Act (1999) and Animal Slaughter House and

Meat Inspection Rules 2001.

DoLS.

Pesticide Act 1991 and Pesticide Rules 1994. Department. of Agriculture

(DoA). Protection Directorate Plant Protection Act 2007 and Plant Protection

Rules 2010.

DoA, designated National

Plant Protection

Organization/National Plant

Quarantine Program Office. Iodized Salt (Production, Sales and Distribution)

Act 1998.

Ministry of Health and

Population.

Mothers' Milk Substitute (Control of Sales and

Distribution) Act 1992; Mothers' Milk Substitute

(Control of Sales and Distribution) Rules 1998.

Enforcement by Ministry of

Health and Population;

Product quality certification by

NBSM; product quality tests

under monitoring program by

DFTQC. Besides above legislations following Act and policies are also

involved to maintain food safety in Nepal:

The Drug Act 1978.

Food Safety Policy, 2019.

National Plan, 2019-2023.

Agriculture Development Strategy (ADS), 2015-2035.

The National Health Policy, 2014.

Nepal Trade Integration Strategy (2010) (NTIS).

Food Quality Control programs of DFTQC include:

Food /feed market inspection and legal actions.

Food industry inspections and license issuing.

Hotel, restaurant inspections.

Development of new food standards.

Consumer awareness campaigns.

Export-import certifications.

Highway hotel/restaurants inspection and standardization.

Joint monitoring program with DoCSM (rapid response team)

mobile inspection van food inspection campaign over the

country.


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4.3 Export – Import Certification

To comply with the SPS requirements, the "Export Import Inspection and

Quality Certification System" Directive 2006 was developed for issuing

related certificates for agricultural products to be export and import

(HMG, 2006). This directive was introduced by GoN in 2006, on the basis

of Food Act 1966, Plant Protection Act 1972, Livestock Services Act 1998

and related rules.

4.4 Standardization for Livestock

DoLS (2015) has also developed and adopted following several

standards, standard operating procedures (SoP) and directives:

Standards for testing veterinary biologicals.

SOP for quality testing of different biological standards for

livestock transportation.

SOP for animal quarantine inspection and certification.

Standards for export-import of meat and meat products.

Quality standards of importing fingerlings.

Import standards for parental and commercial chicks.

Standards for importing hatching eggs (for chicken production).

Standards for importing consumable eggs; importing fishes.

Standards for veterinary laboratory.

Standards for meat shops, hatchery standards.

Poultry breeding farm standards.

Standards for broiler chicken management.

Guidelines for sales/distribution of the domestically produced

day-old chicks in Nepal.

Packaging and transportation standards of fingerlings.

DoLS has also drafted some Code of Practices (COP) and standards

are: COP for raw milk production, collection, chilling and transportation;

COP for animal shed; COP for practice for poultry shed; Standards for

pig feed; Standards for poultry feed; Standards for animal feeds; and

Voluntary Standards for feed ingredients (wheat bran, maize, soya cake,

mustard cakes, fishmeal, bone meal).


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5. Issues, Challenges and Opportunities on Food Safety

5.1 Export Issue

In the past, Nepal has experienced several issues related to exports and

imports of food products with India, China and other countries; and

some of the issues are still ongoing. Nepal is facing the challenges of non-

tariff barrier as Nepal’s own legal framework is not supportive to resolve

those issues. Some of the food safety issues of Nepal in international

trade are listed in Table 4.

Table 4. Food products with trade issues in Nepal

Food Products Trade Issues in Nepal

Export of Butter to

China

Nepal’s butter did not comply with the Chinese

requirements and documents necessary to epidemic

monitoring control, eradication of foot and mouth disease

and cattle plague.

Export of Honey to

Norway

After Norway harmonized regulations with EU, the export

of honey was hindered due to Nepal's inability to develop

national residue monitoring program. According to EU

Council Directive 96/23, countries not submitting the

national residue monitoring do qualify to be included in

the list of approved third countries for trading animal

products.

Export of Tea

The pesticide residue content of the banned pesticides such

as phorate and metacid has become an issue and concern

for the export of Nepalese tea. In the past, Germany

detained consignment of Nepalese orthodox tea on the

ground as it contained 0.24 ppm of tetradifon, which is 24

times higher than the maximum permissible residue level

in Germany. In another case, the tea sample was rejected

due to presence of higher residue of ethion. The organic tea

was rejected in EU countries due to residue content.

Export of Fruits and

Vegetables

The test report of pesticide residue content on fruits and

vegetables is needed for export to India. Also, Pest Risk

Assessment (PRA) is required and it should be included in

the list of eligible products for import to India for

agricultural products of plant origin. The current practice is

to inspect the consignment and draw samples at the

custom point (Panitanki) and send them to CFL at Calcutta.

It normally takes more than three weeks to produce the

analytical report.

Export of Ayurvedic

Product

There is a demand of Good Manufacturing Practices (GMP)

certification from the importers of herbal products. All the


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Food Products Trade Issues in Nepal

Ayurvedic producer of Nepal does not have GMP

certificates. Therefore, there is a need for fully accredited

laboratory to facilitate international trade of agro-products

including ayurvedic products.

Export of instant

noodles to India

The exporters of instant noodles to India require the

certification of analysis from CFL Calcutta which normally

takes more than three weeks. The consignment that tends

to be held at the border point is exposed to high

temperature and humidity, resulting in biochemical

changes from adverse weather conditions.

Measures need to be taken to develop MOU

(Memorandum of Understanding) based on MRA (Mutual

Recognition agreements) between the two countries.

Import Issues In general, quality control of imported products is limited for

feed ingredients such as corn, soya cake and feed

supplements. None of the three SPS units situated at the

border entry points of Nepal carry out inspections or

analysis of the imported products. Moreover, standard or

norms are not made for such ingredients. Lack of

coordination amongst the three SPS monitoring agencies has

complicated the import regulation system and procedure.

Sometimes, Department of Custom intervenes by conducting

inspection, and drawing samples.

Inspected and tested samples are based on composition

analyses, which do not ensure the safety of imported

products. The current practice of monitoring imported

products cannot prevent dumping of substandard or

unsafe products into the country. Lack of monitoring

system for food products of GM origin is also the crux of

the importer’s problem.

Other Issues

Lack of preventive or proactive approach such as GMP, GAP

(Good Agriculture Practices) and HACCP in food quality

assurance system failing to address the issue of traceability in the

supply chain.

Poor harmonization of standards and regulations with

international practices, and lesser importance given to horizontal

standards such as pesticide residues, mycotoxins, heavy metals,

veterinary drug residues and food additives.

Inadequate institutional capacity building on food safety.


135

Weak technical skills in food safety related matters and under-

trained manpower for food inspections.

Lack of inspection tools/guidelines.

A larger number of vacant posts in DFTQC.

Inadequate trained human resources for inspection/quality audit,

risk analysis, laboratory services.

Inadequate laboratory facilities to carry out tests on contaminants

and GMO’s, at central, regional, and quarantine laboratories.

Lack of accreditation of CFL with internationally recognized

accreditation body according to ISO 17025.

Limited resources and malfunctioning of some of the specialized

testing instruments/equipment due to lack of repair and

maintenance facilities.

Inadequate infrastructures for export/ import certification.

Lack of undertaking measures for equivalency and MRA with trading

partners.

Legislative framework: inadequately defined, demarcated;

streamlined responsibilities and mandates given to different

regulatory bodies - DFTQC, DoLS, DoHS, DoCSM etc.

Inadequate surveillance system.

Poor sanitary conditions in processing and handling of street

foods and restaurants; warehouses and retail outlets.

Lack of consumer awareness in the semi-urban and rural areas.

Insufficient funds allocated by the GoN for food inspection and

control activities in a country.

Lack of clear role of regulatory/voluntary/private standards.

Inadequate preventative measure across entire food chain.

Lack of data base for food borne diseases surveillance and food

monitoring (risk-based standards and monitoring).

Limited political support to address food safety issues.

Unauthorized operation of food business in large numbers.

Large increase in food product import volume.


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Food safety related incidents are not reported very often. Hence,

it is very difficult to trace out the incident.

Lack of experience and political commitment in federalism,

resulting in ineffective coordination and cooperation among

local, provincial and federal governments in carrying out

regulatory activities.

GAP, GMP and HACCP not in practice in all food production

and manufacturing areas.

Lack of international accreditation food safety related

laboratories.

Insufficient awareness among the producers, processors, food

handlers, traders, policy makers, regulators, and consumers for

health protection and trade promotion.

Lack of Risk Assessment, management and communication on

potential food borne illnesses.

Common practice of selling foods on the streets without

following hygienic practices.

5.3 Opportunities on Food Safety

The shared resources of government, producers, processors,

traders, and consumers can lead to establish an improved food

quality and safety assurance system.

Implementation of good code of practices in food supply chain

helps to improve safety and quality.

All GoN’s concerned agencies and regulatory bodies can start

efficient and effective monitoring and inspection system in an

integrated approach.

Promotion of public-private partnerships for improving food

safety practices in the food processing industries related to crop,

livestock, and fisheries origin.

Consumer protection associations, and other relevant civil society

actors can be empowered to demand safe and quality foods.


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6. Prioritization of Policy Initiations

At start, capacity enhancement is crucial to promote decent practices in

the food chain to ensure compliance with national and international food

safety requirements. Some of the important policy initiations/

prioritizations are to:

Develop and improve integrated and modern food control

system.

Develop tools to guide planning and investment in national food

control systems.

Launch support programs for emerging and prioritized food

safety and quality issues.

Enhance effective participation in CAC, World Organization for

Animal Health (OIE), International Plant Protection Convention

(IPPC) and other international forum’s activities.

Develop tools and operational guidelines related to various

technical and managerial aspects of food control system

including: risk analysis, food inspection, food safety/quality

management, traceability, consumer awareness and education.

7. Conclusions and Recommendations

Existing food control system including food safety regulatory system needs to be revamped to embody all relevant stakeholders in food chain safety assurance system, i.e. consumer protection in the entire production to consumption chain, research and development thrust, encouraging establishment of quality infrastructures and quality related promotional/educational programs. For this, several reform measures have to be considered. The major recommendations include:

i) Food legislation (Food Act, 1966 and Food Rules, 1970) needs to be revised to comply with:

SPS requirements.

Risk analysis particularly risk management and communication.

Quality auditing and pro-active safety management.

ii) Promotion of the GAP, GVP and GHP at the farm level.

iii) Adoption of code of practices like GMP and GHP in food processing industries to meet HACCP and ISO: 22000 requirements.


138

iv) Fostering multi-sectorial collaboration among public health,

animal health, agriculture and food quality control

v) Advocacy on consumer awareness on the consequence of

hazards and related health risk to human beings.

Reference

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(NEFOSTA), Kathmandu.

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Secretariat of Nepal, Singha Durbar, Kathmandu, Nepal.. Unofficially translated

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tarius.org/about-codex/en/.

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Chapter 9

Food Safety: Current Status, Challenge and

Policy Perspectives in Pakistan

Saif Ullah Janbaz

Deputy Secretary, Ministry of National Food Security and Research, Islamabad,

Pakistan. Email: [email protected]

Abstract

Food supply in Pakistan is generally safe as the food items are usually organic

and used in raw form in traditional ways. However, a large number of people are

suffering from different kinds of illness every year due to the less quality of the

food consumption. Adulteration in food items like milk and milk products is still

a big challenge in the country. The Provincial Governments have established

their respective food authorities to ensure safety measure at all stages of food

value chain. The mechanism of food surveillance and traceability of raw

materials as well as the finished products have also been provided in the

provincial laws. Federal Government is in the process of formulating a national

food safety law and authority to ensure uniformity of food standards all across

the country. The proposed Federal Laws / Regulations are expected to minimize

the gaps in the food safety legal framework as well as enforcement regime among

the provinces and regions. This study has also found a correlation between food

safety and poverty alleviation. Observance of food safety measures and practices

minimizes the food losses and save the humans from illness thus contributing to

efforts for alleviation of poverty. Youth and women have a significant role to

promote food safety in the society. Establishment of a Regional Food Safety

Network and sharing of successful policies and best practices with each other is

expected to help promote food safety in the SAARC Region and boost trade

among the member states.

Keywords: Food safety, food surveillance, poverty alleviation

1. Introduction

Before the twentieth century the food was produced and consumed

almost completely from local areas. Due to improved technologies and


Janbaz: Food Safety: Current Status, Challenge and Policy Perspectives in Pakistan

141

transportation systems, food production and distribution systems

became very complex. Increased trade globalization, climate change and

intensification of agriculture have reduced the resilience of agriculture

production systems and increased their vulnerability to pests, diseases

and hazardous substances. During 1980-2010, international trade in

agriculture and food products increased from US$ 230 billion to about

1100 billion, which was fourfold increase (WHO, 2019). The extension of

trade also brought high profile food safety risks and hazards. The World

Health Organization (WHO, 2019) estimates that 600 millionalmost 1 in

10 people in the world fall ill after eating contaminated food and 420000

die every year (WHO, 2019). A single event of food borne disease

outbreak can result in huge economic losses and cause a collapse of

consumer confidence, loyalty and reputation of companies and countries.

The impact of food safety challenge can be devastating. Food safety

issues are playing an increasingly dominant role in domestic food

production and consumption systems and in agro food trade (Maertens

& Swinnen, 2014).

The international trade in food products is regulated with ever more

stringent requirements. The SPS agreement of WTO requires the member

countries to harmonize the requirements with the international standards

for food safety and animal and plant health. The standards set by the

Codex Alimentarius Commission are the international reference for the

WTO food safety measures along the value chain. The World

Organization for Animal Health (OIE) and the International Plant

Protection Convention each set standards for food safety.

The concept of Food safety covers avoidance of food borne

pathogens, chemical toxicants and physical hazards and also includes

matters like nutrition, food quality, labeling and education. The products

like fruits, vegetables, meat and dairy are highly perishable products and

if proper safety standards are not followed during production,

transportation and even the consumption can pose serious food safety

risk and human health. The movement of perishable products through

border crossing points in the SAARC Region is considerably delayed by

multiple regulatory inspections and clearance procedures related to food

safety, which hamper the regional trade further. Export of primary and

processed food products to the end markets faces challenges due to lack

of modern food processing technologies.


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Pakistan as a developing country is striving hard to tackling

challenges in many fields, which include food security and food safety.

Food Safety refers to handling, preparing and storing foods in a way to

best reduce the risk of individual becoming sick from food borne

illnesses. It refers to provide safe hygiene food for healthy and

productive human being leading to productive society. It covers removal

of all the hazards that can make food unhealthy for human consumption.

To ensure food safety there is need for covering all stages including

production, processing and distribution of food items. Establishment of a

vibrant food safety mechanism is essential for protection of public health.

Strong institutional system/ framework must be in place to operational

and implement national and international food safety standards. There

must be regulations to meet national and international food safety

standards, rationalization and up gradation of laboratories and capacity

development of value chain actors to implement food safety.

The rapid growth of population in Pakistan makes the food security a

big challenge. While the government of Pakistan is making its best efforts

to ensure food security in the country, food safety has emerged as a

much bigger challenge. To prevent food borne illness to the citizen

during preparation, handling and storage of food is the priority of the

successive governments in Pakistani. The governments at the federal and

provincial levels are making efforts through institutional implementation

mechanism and mass awareness to ensure safe food supply keeping in

view the key principles of food hygiene as identified by WHO.

It has been realized that the capacity of our relevant institutions in

the area of food safety standards is not appropriately matching the

challenges. Pakistan has set of laws and regulations regarding various

aspects of food safety. These laws provide for satisfactory level of food

safety. However, there is lack of integrated legal framework.

Enforcement of these laws also remained a challenge. All the provinces

have their own separate laws and regulations and food safety authorities.

The federal government is considering to establish an umbrella food

safety control system, which includes Pakistan Food Authority at Federal

level to ensure national standards across the country and bridge the gaps.


Pakistan is a federation where authority and functions are distributed

among the federal government and the provinces through a


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constitutional arrangement. Under the 18th constitutional amendment a

number of functions including agriculture were devolved to the

provinces. As a result, the provincial governments have developed their

own food safety laws and authorities. The provincial governments are

developing their sanitary and phytosanitary regulations. National Food

Security is the responsibility of the federal government. Food imports are

also regulated by the federal government, while the food safety

standards are regulated by the provincial governments in consultation

with federal Government.

2.1 Legal Framework

There are four laws which exclusively deal with food safety.

The Pure Food Ordinance 1960.

The Cantonment Pure Food Act 1966.

Pakistan Hotels and Restaurant Act 1976.

Pakistan Standards and Quality Control Act 1996.

The basic objective of food safety laws and regulations is to protect

public health by reducing the risk of food borne diseases and illness and

improve the nutritional status of the people. The Pure Food Ordinance

1960 aims to ensure purity of food being supplied to people in the market

and therefore, provides for preventing adulteration. All the provinces

have adopted this law with certain amendments. The Cantonment Pure

Food Act, 1966 is applicable in the cantonment areas. There is no

substantial difference between pure Food Ordinance and Cantonment

Pure Food Act 1966. Pakistan Hotels and Restaurants Act 1976 (GoP,

1976) applies to regulate the rates and standards of services by hotels and

restaurants. Under this act the sale of food or beverages that are

contaminated or not prepared hygienically or served in utensils that are

not hygienic or clean is an offence.

2.2 Pakistan’s National Standards

Pakistan’s national standards cover agriculture, food stuff, chemicals and

textiles. About 47 products like edible oil, biscuits and bottled water are

mandatory for human safety and public health reasons under the

Compulsory certification Mark License Scheme are covered in the

national standards. These goods whether imported or domestic must

meet Pakistani standards, which are generally harmonized with


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international requirements and have a certification Mark issued by the

Pakistan Standards and Quality Control Authority (PSQCA) (GoP, 1996).

PCQA under the Ministry of Science and Technology is the national

Standardization body and performs its duties and functions and is

governed under PSQCA Act 1996. Domestic manufacturers and exporters

must be registered with PSQCA to ensure compliance. PSQCA is a

member of the International organization for Standardization (ISO) and

is the apex body to formulate or adopt international standards. PSQCA

has mandate to inspect and test products and services for the quality,

specification and characteristics during use, import and export.

2.3. Food Safety Standards

The food safety standards were established under Pakistan Pure Food

Laws (PFL) in 1963 and revised in 2007 and 2011. These regulations

address purity issues in raw food and deal with additives, food

preservatives, food and synthetic colors, antioxidants and heavy metals.

The PFL is the basis for the existing trade related food quality and safety

legislative framework. It covers 104 food items falling under 9 broad

categories: milk and milk products; edible oil; beverages; food grains and

cereals; starchy food; spices and condiments; sweetening agents; fruits

and vegetables; and miscellaneous food products.

2.4 Standards for Imported Goods/ Food Items

For imported food products the federal government applies Codex

standards and guidelines in its regulations. United States Food and Drug

Administration standards are also used for some products. A list of

permissible food colors is updated every year. For animal products

‘Halal certification (slaughtered in accordance with Islamic law) is

required. Pakistan as a member of International Organization for

Standardization (ISO) continues to harmonize standards with

international requirements. The federal government is working to

establish a National Food Standard and Safety Authority to regulate and

coordinate the quality aspects of food in the country and to develop their

standards to meet consumer safety in accordance with the recognized

National Food Safety measures, international standards, guidelines and

recommendations established by the Codex Alimentarius Commission.


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2.5 Provincial Government and Food Safety in Pakistan

The provincial Governments have their own food safety laws and

regulations:

Punjab Food Authority Act 2011 (GoP, 2011).

The Baluchistan Food Authority Act 2014.

Khyber Pakhtunkhwa Food Safety Authority Act 2014.

The Sindh Food Safety Act 2016.

Punjab Pure Food Regulations 2018.

The provincial legislations have the basic purpose is to ensure availability of safe food for human consumption. Lay out standards for food articles and to regulate their manufacturing, storage, distribution, sale and import. Devise standards, procedures, processes, guidelines covering all aspects of food and food business like food labeling, food additive and specify appropriate enforcement systems. It also includes formulation of the method of sampling, analysis of samples and reporting of food laboratories. Formulate method of sampling, analysis of samples and reporting of result. Specifying licensing, prohibition orders, recall procedures, improvement notices or prosecution. Provide specific advice and technical support to the government in matters related to food; collect and analyze relevant scientific and technical data pertaining to food; establish a system of network of food operators and consumers to facilitate food safety and standards; promote awareness as to food safety and standards; registration, licensing and certify food for export.

2.5.1 Enforcement

A number of enforcement tools and mechanism have been provided in the provincial legislations, which include improvement notices, imposition of fines through ticketing, seizure of food items, sealing of premises, prosecution in the Courts of law, emergency prohibition orders and recall of substandard food items.

2.5.2 Surveillance

The mechanism for food surveillance is also provided in the provincial legislations. The surveillance covers surveillance of all the steps involved in the manufacturing, transportation, storage and marketing of food items. International best practices are adopted in order to ensure traceability of raw materials as well as the finished products. Checks/ controls whether the food items are transported and stored in adequate hygiene environment and controlled conditions are also the part of the food safety regime.


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2.5.3. On the Spot Testing

On the spot testing through rapid testing kits is provided. For checking

the quality of food items through on the spot kits are used to detect

various adulterants in milk, spices, tomato ketchup and also rancidity in

cooking oil and ghee. Instead of drawing samples of everything, the field

teams draw samples of only those products and send them to laboratory,

which do not clear the rapid testing tests.

2.5.4 Surprise Inspections

Raids are made at city entry points, shops/ Road Side Vendors are issued

improvement notices and provide guidance on food safety and personal

hygiene to these vendors. Prosecutions are launched in the court of

Special Judicial Magistrate for all substandard samples.

2.6 National Food Safety Authority

For uniformity and have national standards and bridge the gaps among

the regions, Federal Government is considering in consultation with the

provinces to have a national food safety authority body/ arrangement at

Federal level. The initial purposes of umbrella National Food Safety

Network includes:

Ensure availability of safe food for human consumption across

the country.

Development of national food standards as per WTO and Codex

standards.

Be part of International and regional Food Safety networks and

meets international commitments.

Ensure smooth export of food products.

Develop coordination mechanism among various stockholders,

provinces and regions.

Uniformity of the standards all across the country.

Establishing an efficient, vibrant and well coordinated

enforcement mechanism/system.

Specify procedures and guidelines for setting up and

accommodation of Food Laboratories.

Organize training program / workshops in food safety and

standards for experts and campaigns for public awareness.


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The adaptation of the international food safety measures and good

practices is a continuous process in Pakistan. Need for integrated

national food safety legislation and strategies for implementing the

international food safety standards have been identified. Efforts are

underway both at national and provincial levels to adopt international

food safety standards and ensure preventive measures all along the food

value chain. At the import border control facilities, rapid field tests will

be made and further testing at the referral laboratories. For this purpose,

central laboratory to be upgraded to a referral laboratory with

international accreditation.

Institutional capacity constraints are major obstacles to the

enforcement of food safety standards. Continuous efforts are being made

to transform the traditional market style to emerging domestic market

based on food supply chains providing both for inland needs as well as

exports. Federal import laws and regulations are based on international

standards and are very comprehensive. The main contours include that

the imported food products have at least 50% of original shelf life

remaining at the time of importation. For ensuring the shelf life is

correctly mentioned, it is ensured that each retail pack have the

production and expiration dates printed on the label. Besides, shelf life

and labeling importation of food products containing pork or pork

products is prohibited in Pakistan. Meat and dairy products may be

imported only if certified to be hallal. Commercial import of alcoholic

beverages or products containing alcohol is prohibited.


The food has to be carefully handled from the farm to the consumers.

There is a need to have comprehensive and integrated approach to food

safety all along the food value chain that addresses problems by adopting

good practices proved successful elsewhere. Food safety risks need to be

reduced by preventing contamination throughout the food production,

processing, storage, and distribution chain. Advances in food science and

technology have stimulated the growth of the food industry but in some

cases it could also introduce new health concerns.

The trade among the various countries can be improved in food items

by establishing good practices in the food value chain and having a

regional food safety network. The best practices adopted in the other


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regions throughout the world benefit from food safety networks, some

good examples are:

European Food Safety Authority (EFSA).

ASEAN Regional Food Safety Framework.

African Food Safety Network (AFoSaN).

Latin American Food Analysis Laboratory Network (RILAA).

Countries in the successful regional networks share experience,

expertise and infrastructure, coordinate action to prevent non-compliant

food entering the region. A framework for food safety in the SAARC

Region is liable to help reduce food safety challenges in the region by

getting benefits from each other’s experiences and boost trade between

the member states. Adopting the international best practices in the

SAARC Food Safety Network, would help the member states to comply

with the international food safety standards, development of capacity,

institutionalization of regulations, up gradation of infrastructure facilities

and accreditation of laboratories etc. It would also pave the way for

better coordination both intra country as well as inter countries among

government ministries/ organizations like agriculture, environment,

health, trade, custom and border management organizations.

Introduction of transparent procedures and incentive structures by

adopting the good practices of successful models would also benefit the

private sector and business in the food sector in the member states.


Pakistan is a low income country and agriculture is its most important

sector due to its primary commitment of providing healthy food to her

fast growing population. While food security has been ensured in

Pakistan, provision of safe, hygienic and health food is the priority area

of various tiers of Government in Pakistan.

Safely handling and cooking food save wastage as well as avoid food

borne illness. Prevention of food spoilage particularly from microbial or

chemical contamination by educating the people, not only helps in

prevention of spoilage of food but they may also be kept aware how to

protect themselves from contaminated food. Almost all the factors in the

food chain have a role to safeguard the food losses. Farmers at the form

level, food processors, caterers, retailers and even the consumers have

their respective roles in reduction of food losses. Conservation of food,


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effective processing and food surplus redistribution is considered

important for food waste and loss reduction and poverty alleviation.

Food safety measures and proper preservation at all levels of food

chain help in reduction of food losses; provide more job opportunities

and quality food to the citizens. By developing good practices in the

trade of food items the safe food can be delivered to the consumers

leading to less health problems resulting in alleviation of poverty.

Improvement is food handling at all stages at national and regional

level in a mechanized way will certainly reduce food losses, which would

increase food availability and reduce poverty in the country as well as in

the region. Furthermore, food is evenly vital for affluent and the poor

because everyone need safe and nutritious food for healthy existence and

life. The food safety efforts contribute towards reduction of food losses,

thereby increasing food availability and reducing poverty.

6. Youth and Women to Promote Food Safety

The concept of food safety is to prevent food from becoming

contaminated and provide healthy and fit food for human consumption.

All the segments of the human society have important role to keep the

food safe and hygienic, however, right from the agro farms, processing

units, distribution centers, retailers, in the kitchen youth and women

have an essentially important role in food safety. The five key principles

of food hygiene, according to WHO are:

i) Prevent contaminated food with pathogen spreading from

people, pets and pests.

ii) Separate raw and cooked foods to prevent contaminating the

cooked foods.

iii) Cook foods for the appropriate length of time and at appropriate

temperature to kill pathogens.

iv) Store food at the proper temperature.

v) Use Safe water and safe raw materials.

If we look at the principles provided by the WHO, the role of youth and

the women appear most relevant and important for the sustainable food

safety especially at the household levels. Youth and women are also the

part of the food chain at all levels, so their role in food safety is

paramount. Through their jobs in the farms, food processing for markets


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and preparing food at home, the women has a key role in ensuring

quality and safety of the food the people consume.

7. Identify Gaps in Food Safety Measures at Regional Level

Safe and hygienic food is the first line of defense against diseases. In

Pakistan intensive efforts are being made to eliminate and overcome

supply of unhygienic and adulterated food items at every step of formal

and informal value chain. The existing legal regime provides for control

of food adulteration and makes sure availability of hygienic food to the

citizen. However, due to lack of punishments and underperforming

enforcement mechanism, still there are grey areas hampering elimination

of supply of unfit food. Having realized these weaknesses the provinces

are introducing much stringent measures with more proactive

enforcement. Federal government is also reviewing to establish a

comprehensive mechanism for regulating and managing food items

across the country with uniform standards and to meet international

obligations. Establishment of SAARC Regional Food Safety Network

provides an effective mechanism to ensure designing, implementation

and maintaining food safety measures in the SAARC Region.

Food safety programs in South Asia by and large lack some of the

important elements, which include:

Identification of the nature and extent of national food safety

problems in each member state.

Understanding of the exact impact of contaminated food on the

nation’s health status, socio-economic development and human

resource development;

Lack of awareness of the urgency for the need to investigate and

do research.

There is a need for identifying specific food safety problems and their

impact on human development in the SAARC region. Sharing

information, education, and good practices advice among the member

states are essential to effective food safety programs to minimize the

incidence of food-related hazards in the SAARC region.

The situation in the SAARC was grasped in the workshop on Food

Safety in South Asia: Situation analysis Challenges and way forward held

in Islamabad on June 20-22 June, 2014, following were identified as Food

Safety Issues in South Asia:


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Unavailability of uniform SAARC specific food safety standards.

Lack of coordinated mechanism of food safety surveillance. There

is need for development of food safety data base and rapid alert

system among the SAARC member states.

Lack of awareness on hygiene and food safety. There is need for

trainings awareness campaign through mass media, street play

by using ICT technology at gross root level. Adoption of food

safety at villages and schools by industry and educational

institutes, while sharing success stories among the member states.

Lack of adequate technical infrastructure and human resource. To

overcome there is need to develop network of authorized and

accredited regional food laboratories and identify Nodal Centre

of excellence for training of human resource and sharing of

technical expertise among SAAR countries to augment the

infrastructure.

Lack of hygiene and sanitation practices. For this training and

awareness of street vendors towards food and water hygiene and

safety is required. The good practices of other SAARC member

states along with development of cost effective street vending

carts, mechanism for hygiene evaluation, identification through

color code may be adopted.

Lack of data base on safety toward food related bio diversity of

specific herbs and botanicals. Coordinated survey / study on

herbs / botanical for use in food, safety evaluation of herbs and

botanical, protection of intellectual property rights are required.

The suggestions and areas identified by SAARC Workshop safe and

hygienic food are quite apt, however, despite lapse of 5 year no

significant progress in these areas which necessitates that without well

placed coordinated efforts to institutionalize such efforts at the SAARC

level by establishing a regional food safety net work the implementation

and resolution of these issues is less likely be fully successful.

8. Policies and Practices on Food Safety Management

For an effective food safety management, food safety laws and

regulations should be relevant, enforceable and proactive. Strengthening

international food safety standards in agriculture value chain is the

priority area in Pakistan. The main components of the food control


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system are: food laws and regulations; food safety control management;

inspection services; laboratory services for food monitoring and

epidemiological data; and information, education and training.

A number of ministries and bodies and organizations are involved

which include Ministry of National Food Security and Research, Ministry

of Science and Technology, Ministry of Health, Ministry of Commerce

and provincial Governments. Under ministry of National Food Security

and Research there are following organizations.

Animal Husbandry Commissioner, which is Chief Veterinary

Officer and responsible for disease surveillance and control,

epidemiology, drugs and vaccines and dairy sector.

Animal Quarantine Department is governed under Animal

Quarantine Import and Export of Animal Products ordinance,

1979 and is responsible for animal health conditions for import

and export, meat inspection for exported meat/casing, control at

border inspection posts.

National Veterinary laboratory is responsible for disease

surveillance, veterinary drug testing, vaccination quality and

residue testing.

Department of Plant Protection functions as NPPO for Pakistan

under the Plant Quarantine Act 1976. It is responsible for plant

and disease surveillance. It has 26 border inspection posts for

plant pests / diseases and controls import and export. This

department is also responsible for authorization of pesticides

under Pesticide Ordinance 1971.

Grain Quality testing Laboratory is responsible for sampling,

testing for import and export of grains and other food items,

pesticide residue and aflatoxin testing.

The Ministry of Science and Technology has the administrative

control of Pakistan Standards and Quality Control Authority (PSQCA),

which is national standardization body and responsible for enforcement

of standards. To inspect and test products and services including food

items for their quality, specification and characteristics during use and

for import and export purposes.

The Customs Department under Ministry of Finance and Revenue

has the primary function to ensure that the imported food items meet

Pakistan’s labeling and shelf life requirements and are not on the list of

banned items and assess the appropriate tariffs.


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9. Challenges and Opportunities on Food Safety Management

The national food safety system has become more complex especially due

to advent of new technologies, globalization of food supply and use of

anti-microbial. Latest technologies like food irradiation through Gama

Ray’s treatment to enhance the shelf life, decontamination and

disinfestations of food contribute towards food safety and security. Due

to which while new opportunities for ensuring food safety t are created,

new issues and challenges are also emerging.

The food safety networks functioning at provincial level in Pakistan

are facing many challenges which are mostly related to enforcement

mechanism. Adulteration is in food items is a serious challenge,

especially in the milk, products and cereals etc. Due to underdeveloped

cold storage facilities a lot of food items are spoiled/ contaminated in the

food chain right from farm to the end user. Need of action plan for food

safety management at the national level in Pakistan has been identified.

For success of an effective safety management system whether at

national or regional levels, the involvement of all the stakeholders

including the consumers, growers and food industry is essential.

Information, communication channels and approaches need to be

tailored to suit different audiences, especially the high-risk consumers.

Additionally, officials involved in national food control programs need

trainings and capacity building. The task could be accomplished more

effectively by a multi-institutional approach through engaging both the

public and private sectors. In addition, specific food safety policies and

plans under the proposed regional food safety network consisting of

SAARC countries would be of great help to ensure food safety measures

in the region and enhance trade among the member states.

10. Recommendations to Promote Food Safety

Different strategies are required to develop safety standards. Capacity

development, through trainings, workshops and networking

opportunities are the key components to improve food safety.

Harmonizing internationally accredited food safety standards across the

region for credibility and consistency of quality control are important.

National food safety development and regional cooperation to

harmonize standards and regulations governing agro food trade could be

instrumental to ensure food safety at national and regional levels. It

would support harmonization of standards, technical regulation,


154

conformity assessment regimes and sharing of information to build

capacity in food inspection and certification. The SAARC Food Safety

Net Work could help in food safety risk assessment and boost trade. The

European Food Safety Authority and Association of South East Asian

Nations Food Safety Networks could serve as model for SAARC Food

Safety Network.

Review of existing infrastructure of the laboratory facilities, including

boarder points for performing inspections and verification of compliance

with the international food safety standards is required. Developing

financing plan for compliance with the international food safety

standards is important. Developing a framework for a knowledge

sharing platform for inter SAARC Cooperation and developing early

warning system and emergency response to food safety problems

affecting the region is key for getting the real benefits of each other’s

experience and regional collaboration and trade. Training for selected

trainers for food industry on GHP, HACCP, traceability and inspection.

For development of regional and national food safety networks, all

stakeholders should be consulted. The expected benefits from regional

network are as follows:

Sharing experience and expertise in food safety risk analysis

Developing Regional Codex standards.

Sharing Laboratory expertise

Harmonizing food safety laws and regulations with SPS

requirements and Codex guidelines to remove technical barriers

to trade.

Alerting members to common food safety problems and

developing collaborative preventative approach.

Coordinating regional positions and active participation in SPS

standard setting bodies like Codex Alimentarius, OIE and IPPC.

A SAARC workshop was conducted on Food Safety in Pakistan in

2014, put forth following recommendations, which are very relevant and

need to be given serious consideration:

SAARC member states may sign MoUs for strengthening and

harmonizing the food safety system.

Establishment of SAARC Web Portal for networking of food

safety activities, standards accessibility, food laws, issues.


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Establishment of standards regarding street foods, hotels and

restaurants etc.

Training programs may be imparted in collaboration with

relevant institutions in each country on yearly basis.

Awareness programs among consumers through mass

communication (Electronic and Print media).

Special program on Food safety awareness to stakeholders, street

vendors, restaurants, journalist, women activists, school teachers,

monastic bodies, hospitals, farmers at village level and household

level, mass communication and consumer forum be established.

Food Safety Program for school going children.

National Risk Assessment Centers be establishment.

SAARC Incubation Center Program- linkages between

government, industry and academia for better adoptability of the

food safety sets and compliance.


11.1 Conclusions

Food safety is a key to human health, prevention of spoilage of food.

Development of strategies to ensure food safety is of prime importance

for any country. A well placed food safety control regime provides

solution to the challenges in area of food safety and ensures safe food

supply both for internal consumption as well as exports. All segment of

human population involved in the food value chain play important role

in food safety.

Compliance with international food safety standards requires:

capacity development, enabling legal and regulatory systems, up

gradation of infrastructure, accreditation of laboratories, coordination

between government ministries, and transparent procedures and

incentive structures to develop the private sector. There should be a

supervisory committee to oversee and coordinate the activities of various

organizations involved in ensuring food safety, quality and standards to

ensure success and effectiveness of the food safety Network.

Pakistan is working on to establish an umbrella control system in

consultation with the provinces with a clear objectives of ensuring safe

food supply chains and uniform food standards across the country and

meet her regional and international obligations.


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11.2 Way Forward

The following key suggestions have been derived to promote food safety:

i) Establishment of robust and comprehensive legal framework and

control system / National Food Safety Network for food safety at

national level.

ii) Establishment of Regional Food Safety Network.

iii) High targets of securing food while curtailing the corresponding

losses of fruits and vegetables, cereals, dairy and meant products

ensuring availability for the masses.

iv) Implementation of principles of transparency, independence and

objectivity at all stages.

v) Initiate SAARC Coordinated monitoring mechanism for food

safety, access to data, ensure alignment with SPS, OIE and IPPC.

vi) Alignment and harmonization of national and regional standards

of member countries with WTO and Codex standards.

vii) Organize training program/ workshops in food safety and

standards for experts and campaigns for public awareness.

viii) Enhance responsible regional trade of agriculture and safe foods.

References

GoKP. (2014). Khyber Pakhtunkhwa Food Safety Authority Act, 2014. Government of

Khyber Pakhtunkhwa. http://www.pakp.gov.pk/2013/acts/the-khyber-

pakhtunkhwa-food-safety-authority-act2014/ on 18.06.2019

GoP. (1976). Pakistan’s Hotels and Restaurants Act (1976). Government of Pakistan.

http://www.na.gov.pk/uploads/documents/1493790045_721.pdf on 15.08.2019

GoP. (1996). Pakistan Standards and Quality Authority Act (1996). Government of

Pakistan, http://www.na.gov.pk/uploads/documents/1329726893_317.pdf on

14.08.2019

GoP. (2011). Punjab Food Authority Act, 2011. Government of Punjab,

http://punjablaws.gov.pk/ laws/2460.html on 15.08.2019

Maertens, M. and Swinnen, J. (2014). Agriculture Trade and Development: A value

Chain Perspective. WTO Working Paper. Economic Research and Statistics

Division, 2015-04. Geneva World Trade Organization.

WHO. (2019). Food Safety Key Facts, 2019. World Health Organization

http://www.who.int/mediacentre/factsheets/fs399/en/ on 19-08-2019.

http://www.pakp.gov.pk/2013/acts/the-khyber-pakhtunkhwa-food-safety-authority-act2014/

http://www.pakp.gov.pk/2013/acts/the-khyber-pakhtunkhwa-food-safety-authority-act2014/

http://www.na.gov.pk/uploads/documents/1493790045_721.pdf

http://www.na.gov.pk/uploads/documents/1329726893_317.pdf%20%20on%2014.08.2019

http://www.na.gov.pk/uploads/documents/1329726893_317.pdf%20%20on%2014.08.2019

http://punjablaws.gov.pk/laws/2460.html

http://www.who.int/mediacentre/factsheets/fs399/en/


Chapter 10


and Policy Perspectives in Sri Lanka

H.M. Gammanpila1* and Rudra Bahadur Shrestha2

1Principal Agriculturist (Fruit), Extension and Training Centre, Department of

Agriculture, Peradeniya, Sri Lanka. Email: [email protected] 2Senior Program Specialist (Policy Planning), SAARC Agriculture Center, Farmgate,

Dhaka-1215, Bangladesh. Email: [email protected]


Abstract

Safe food is the key to protect the public from health risks related foods. Food

contamination exist throughout the food systems starts from inputs to the

production, harvesting, transportation, processing, distribution, storage and to

the plate. Food spoilage occurs due to various types of microorganisms making

food unacceptable to the consumer and change of smell, taste, appearance &

texture. Sources of chemical contaminants include but not limited to widespread

use of chemicals such as fertilizers, pesticides, ripening/ anti-ripening agents and

veterinary drugs; industrial pollutants from the environment; food processing

aids such as high temperature cooking, leaching from food packaging materials

and cleansing agents used on utensils. Mycotoxins on the other hand are the

secondary metabolites produced by food contamination with certain types of

fungi. Food safety management system based on Hazard Analysis Critical

Control Point principles (HACCP), Good Manufacturing Practices and Good

Agriculture Practices are important in prevention of food from contaminations.

In order to ensure safety foods, suitable control needs to be exercised throughout

the food chain from farm to fork. Good manufacturing practices form the

foundation for a food safety management system. Safe food is free from biological,

physical & chemical hazards, is the priority area of global public health concern.

Keywords: Food safety, food contamination, food hygiene, Sri Lanka

1. Introduction

Everyone has the right to have safe, nutritious and sufficient foods. At

least one in 10 people in the world fall ill due to contaminated food



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(Wailer & Fernandez, 2019). With unsafe foods, human development will

not take place, children cannot learn and adults cannot work. Thus, safe

food is the basic and crucial condition in improving health and food

security, and ending hunger and poverty of the vulnerable group of

people. Unsafe food containing harmful bacteria, viruses, parasites or

chemical substances causes more than 200 diseases ranging from

diarrhea to cancer (Wailer & Fernandez, 2019).

Celebrating World Food Safety Day program is an opportunity to

strengthen synergetic efforts to promote the safe and hygiene foods,

particularly in the developing economies. In every steps of food systems

including produce, process, sell, trade, maintaining the hygiene

procedure is important for safe foods, and it is the responsibility of all the

agencies involved in the food systems. It has been realized now, access to

safe and nutritious food is the key to sustaining life and promoting good

health. Unsafe or contaminated foods can cause harm to one’s health and

also cause diseases. The World Health Organization (WHO) estimates the

annual global incidence of food-borne diseases are around 600 million

and children below five years carry 40% and burden with 125,000 deaths

every year (Bahuguna, 2015).

In Sri Lanka, food safety is becoming a considerable health challenge.

Ensuring food safety has to begin with production at the farm level.

Misuse of agrochemicals, including pesticides, growth hormones and

veterinary drugs may have harmful effects on human health. As a

country with a strong agricultural base, it is important that we apply

good agriculture practices and good animal husbandry practices to

reduce microbial and chemical hazards. We have already witnessed the

negative health effects of contaminated water sources in some parts of

the country, widely attributed to the growing incidence of Chronic

Kidney Disease.

The consumption of contaminated food has caused illnesses and

deaths of millions of people. The WHO has recognized food

contamination as a global challenge stating that “food contamination that

occurs in one place may affect the health of consumers living on the other

side of the planet (Hussain, 2016).

The Salmonella bacteria are considered as the primary cause of food

contamination. Fresh fruit and vegetables have been identified as the

primary transmission vehicles of salmonella (Dhanapala, 2019). In order

to prevent Salmonella contamination, awareness program and campaigns

Gammanpila & Shrestha: Food Safety: Current Status, Challenge, Opportunity and Policy... Sri Lanka

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need to be widely implemented. The Salmonella may enter from any of

the food chain including inputs, production, processing, transportation,

handling, storage, wholesaling and retailing of any crops, horticulture,

livestock and fisheries. Fresh produce, though previously thought to be

safe for consumption, may be the main source of transmission of the

bacteria. It indicates that no one is ever really safe from getting infected

by these fast-spreading bacteria.

The growth and contamination by salmonella can be controlled and

minimized by following a few precautionary and preventive steps.

According to FAO (2016), some important measures of controlling

salmonella growth are farm location, layout, equipment and clean water

supply, harvesting, on-farm post-harvest handling, transport of

aquaculture products, employee health and hygiene, and physical

approaches such as proper refrigeration, cleaning, separation, and

cooking before consumption. The most vital way of ensuring food safety

is to make the public and all food handlers involved in the supply chain

aware of the hazard of bacterial contamination and ensure adoption of

precautions such as use of clean water when handling raw food items,

proper storage, and proper preparation of food.

Food safety is a global problem threatening the food security of

millions of people. Food safety problems prevail in Sri Lanka in the same

way how it effects on people in the rest of the world. It was believed in

the past that food safety problem can be traced through enhancing food

production by several ways such as use of chemical inputs in excessive

quantities, use of pesticides, food additives hormones, and antibiotics.

However, this strategy ensured an increased quantity of foods in the

early years, it has resulted in degradation of natural resource base and

food safety related issues. In addition, the poorly managed food supply

chains, issues through contamination of food and food spoilage only

added more issues to food safety. This paper therefore has been prepared

focusing the food safety issues, challenges and opportunities, and

policies and programs to improve the food safety in Sri Lanka.

2. Current Situation on Food Safety

Domestic food availability in Sri Lanka is dependent on local production

and imports of foods, livestock products and fisheries. Domestic

agriculture provides more than 85% of the food requirement. Sri Lanka is

nearly self-sufficient in rice as the staple diet item of the country. The


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local production of other main food sources including vegetables, root

crops, and fruitsexceed 75% of total availability.

There is a growing concern about food safety issues in Sri Lanka with

the expansion of the food industries, urbanization, increased trade in

fresh and processed foods, and more consumption of animal origin

foods. Sri Lanka is an island rich in resources to exploit the export

potential of fresh food such as fishes, vegetables and fruits, while

managing the safety risk of these foods to meet international market

requirements is crucial of the day. Considerable progress has been

achieved in fresh and processed fish and fishery products exports along

with vegetables, fruits and cereals during the last decade. Especially,

exporting fresh and processed fish and fishery products are maintaining

higher levels of quality and safety measures compliance with the EU

regulations and the US Food and Drug Administration.

The food borne illnesses show an increasing trend, but still many of

the cases are unreported and public awareness on food safety and risk

management procedures is at a low level in the domestic markets.

Establishing food Hazard Analysis Critical Control Point (HACCP)

systems along with an effective national food control system, imposing a

Sri Lankan standard for processed foods, amending Food Act no. 26 of

1980, harmonization of food regulations with other countries, and

conducting public awareness programs on food safety issues would be

productive measures in managing food safety risk. Still there are many

areas for the improvement. Realistic food hygiene regulations for food

handling in small food establishments and restaurants need to be

established. Capacity building and technical assistance are required for

routine pesticide, mycotoxin and antibiotic residues analysis.


The food insecurity situation has been classified into four categories:

marginally food insecure; mildly food insecure; moderately food insecure

and severely food insecure. The percentages of households of Sri Lanka

falling in to these four categories are 0.9%, 2.2%, 4.1% and 3.1%

respectively (Wailer & Fernandez, 2019).

In Sri Lanka, there is a growing fear of food safety and quality risks

in recent years. Recently, chronic kidney diseases are spreading through

some parts of Sri Lanka, which is suspected due to the use of agro

chemical contamination in food and water, and improper and overuse of


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fertilizers and pesticides. Some farmers intentionally apply pesticides on

harvested or near-to-harvest crops as a strategy to extend storage lifespan

of the harvest. Conversely, Sri Lankan common farming practice heavily

depend on mono cropping and monoculture, which usually escalate pest

attacks and plant diseases; hence extensive agrochemical use is

inevitable. Farmers believe that the higher the usage of fertilizer, the

higher the yield, though not the case in reality. Over usage of synthetic

fertilizer results in subsequent leaching while polluting the groundwater,

a phenomenon common in many agricultural areas.

Rapid industrialization of the global economy has led to severe

environmental pollution with chemicals resulting in contamination of

most of the agricultural food products, especially rice, the staple food of

South Asian countries. The contamination of heavy metals in rice,

marketed in Kandy district was evaluated using Inductively Coupled

Plasma Mass-Spectrophotometer (ICP-MS). Both locally cultivated and

imported rice in Kandy district were tested and analyzed the heavy

metals (As, Cd, Pb, Hg, and Se) from total of 68 samples of branded,

local, traditional and imported rice. The range of mean concentrations of

different metals observed in different rice varieties were: 0.0106–0.1303

mg/kg; Pb: 0.150 –0.2111 mg/kg, Cd: 0.0033 –0.0480 mg/kg, Hg: 0.0056 –

0.0355 mg/kg and Se: <0.2 –0.4706 mg/kg. Except mean concentration of

Se in imported rice and Pb in traditional rice, none of the other mean

concentrations of heavy metals exceeded the permissible level

recommended by FAO/WHO Joint CODEX Alimentarius (Magamage et

al., 2017). It also reveals that 12% of total samples analyzed, including

branded, imported and traditional rice were contaminated with Pb and

estimated daily intakes(edis) of Pb, exceeded the safer value of tolerable

daily intake (TDI) limit set by Joint FAO/WHO Expert Committee on

Food Additives (JAFCA). Further 33% of imported rice samples were

contaminated with As, Pb, Hg and Se and relevant edis exceeded the tdis

of each element recommended by JAFCA. Out of total samples analyzed,

98% of samples were found not to exceed the Tolerable Daily Intake

(TDI) with respect to heavy metals, namely, As, Cd, Se and Hg, while

with regard to Pb, 88% of total samples were also under safer limits. The

findings reveal that generally, rice available in Kandy district is quite safe

with respect to the heavy metal.


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Growing concerns over food safety and the expanding world

agricultural trade have led to enforcement to implement standardized

pesticide regulations in Sri Lanka. Pesticide residues from total 30

samples were collected from two popularity growing leafy vegetables,

namely Alternanthera sessilis (Mukunuwenna) and Centella asiatica

(Gotukola) to evaluate the residue against five widely used pesticides

(Chlorothalonil, Phenthoate, Profenophos, Fifronil, Tebuconazole) in the

country. The results revealed that there is presence of pesticide residues

in these green leafy vegetables. Such residue testing should be expanded

to other districts in order to provide scientific basis for future policy

directives on the quality standards and quality control process even in

other crops (Lakshani et al, 2018).

A Maximum Residue Levels (MRL) was tested in 90 samples of

vegetables including tomato (Solannum lycopersicum), capsicum (Capsicum

annum) and cabbage (Brassica olerecea) were collected during the period of

2016 in different vegetable markets in Nuwaraeliya, and Matale districts.

The results revealed the contamination of pesticide residues in tomato,

capsicum and cabbage available at Nuwaraeliya, Puttalam and Matale

districts and recommend that monitoring studies should be expanded to

other districts in order to formulate national policy on safer use of

pesticides in vegetable cultivation. Safe level of pesticide use is

fundamentally important to ensure food safety (Lakshani et al., 2017). In

order to expedite the food testing for food safety process, the three Sri

Lankan government agencies, the Ministry of Health, the Consumer

Affairs Authority, and the Industrial Technology Institute should have

joint efforts for synergetic impacts of food safety.


Food safety should accomplish with food security and nutrition.

Improving hygiene practices in the food and agricultural sector helps to

reduce the emergence and spread of antimicrobial resistance along the

food chain and in the environment. As global food systems meet the

demands of a growing global population, safe and healthy agriculture

value-chains is essential to maintain public health worldwide. The

current global food production system is composed of large-scale

corporate agriculture and integration of varying degrees of small-scale

agriculture production. The food system faces challenges in monitoring


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and controlling of foodborne hazards in agriculture value-chains, which

lead to outbreaks of foodborne diseases. Recent estimates by the (WHO)

have determined that “the global burden of Foodborne Disease is

comparable to those of the three major infectious diseases, HIV/AIDS,

malaria and tuberculosis” (Havelaar et al., 2015). This indicate that unsafe

food production has major impacts on global public health, economic

prosperity and development outcomes.

The targets of the Sustainable Development Goals (SDGs) can be

achieved with the major role of agriculture sector. Thus, the major

investments to be enhanced for the intensification and diversification of

agriculture production in order to diversify human diets, reduce

undernourishment, and improve nutrition worldwide. This investment

should emphasize, to increase production and consumption of

horticulture crops, animal source foods, postharvest handling and

processing. Improving hygiene practices in agriculture and the food

systems could reduce the emergence and spread of antimicrobial

resistance along the food chain.

Food safety needs to be incorporated at every stage across the food

chain and there is tremendous scope to incorporate good practices and

standards in all sectors of food and agriculture. The role of the private

sector’ to improve the food safety is much important by maintaining the

hygiene in every steps of the food value chains. In the current globalized

open economy, the countries depend their foods on trade where food

safety is the big concern. Food safety standards are important for

ensuring fare trade practices and stable food supplies and prices. If every

government applied different food standards, trade would be more

costly, and it would be much more difficult to ensure that the traded food

is safe, nutritious and meets consumer’s expectations. Thus, the Codex

Alimentarius is the single most relevant international reference point for

food standards. Codex has worked on food safety and trade for over 50

years. It has developed hundreds of internationally agreed standards,

norms and codes of practice.

The Division of Agribusiness counseling (DOAgbiz) also known as

Agro Enterprise Development and Information service under Extension

& Training Centre of Department of Agriculture is the focal point for

agri-business and agro entrepreneur development activities. DOAgbiz

implements agro enterprise development activities through different

approaches. Major programs handled by the Division of Agribusiness


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Counseling Initiatives on enhancing safety and quality of Agri-food

products by adapting Good Agriculture Practices (GAP).

A project on “establishment of a mechanism to ensure quality and

safety of agricultural commodities to local and export markets through

GAP” is implemented through Division of Agribusiness Counseling

(DoAgbiz). The main duties and responsibilities of the division are

instructing, inspecting, and monitoring of the whole value chain from the

field (soil and seed) up to the retail markets including export markets.

The GAP is being introduced on fruits and vegetables. Producers are

registered and certified at DOAgbiz as quality assured suppliers while

DOAgbiz act as a data hub to provide necessary information to the

parties concerned. Agribusiness Counselors in the field were provided

with latest IT facilities (Android tablet PC, Laptop computers and etc.)

for fast dissemination of information and issuing of QR certificate for

traceability. With the successful implementation of GAP project, export

of fruits and vegetables to the European market is promoted with

assured safety & quality of consignments.

DoAgbiz has given technical assistance to develop Sri Lanka Good

Agricultural Practices (SL-GAP) standard. This was developed in

collaboration with SLSI, DOA and other relevant public and private

organizations. Now standards have been published as “Sri Lanka

Standard 1523 part 1:2016, UDC631.57:634. Enhancing peoples’

awareness program on food safety and food waste started from the day

one of our school children that became an inherited knowledge and

people used to behave in a rational manner where food is concern.


Consumers around the world have a right to expect that the foods they

purchase and consume are safe and of high quality. Safe food is the

foundation of a nutritious diet. In addition to safeguarding the well-

being of consumers, food safety is also crucial to enable agricultural

producers to gain access to markets. This in turn contributes to economic

development and poverty alleviation.

Food safety has a critical role in assuring that food stays safe at every

stage of the food chain from production to harvest, processing, storage,

distribution, all the way to preparation and consumption. Keeping food

safe is a complex process that starts on the farm and ends with the


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consumer. Indeed, FAO and WHO cover a range of issues to support

global food safety and protect consumers’ health. WHO typically

oversees and maintains strong relationships with the public health sector,

and FAO generally addresses food safety issues along the food

production chain. FAO assists Member Countries in food safety

considerations in so many means, such as Strengthening national food

regulatory control systems through:

Assisting national authorities to formulate evidence-based,

enabling and coherent policies.

Helping governments review and update food legislation.

Developing institutional and individual capacities to perform

risk-based food inspections, sampling and analysis, risk-

communication and food safety management.

All actors in the food chain have a role to play in food waste

prevention and reduction, including farmers, food manufacturers and

processors, retailers and ultimately consumers. Food surplus

redistribution is considered by many as a partial solution to food waste

reduction and food poverty mitigation. Food safety concerns also lead to

quality losses and can have devastating impacts on nutrition and health.

National Institute of Postharvest Management of the Sri Lanka

government has been established to carry out research & extension

activities related to postharvest losses. Agriculture Department through

their research work try to introduce high quality crop varieties enabling

the farmer to get their yield with minimum level of postharvest losses.

Extension service of agriculture department closely works with farmers

providing them with knowledge to minimize postharvest losses. The

government has established dedicated economic centers island wide

providing the farmer a better market places for their agriculture

products. Hector Kobbekaduwa Agriculture Research and Training

Institute (HARTI) in Sri Lanka collect necessary data relating to

postharvest losses due to unprofessional marketing systems, making

aware of all parties concern in order to reduce postharvest losses. Sri

Lankan farmers have been provided irrigation facilities and water

conservation systems to achieve higher level of food production.

The Department of Agriculture started a program to empower

women aiming at poverty elimination by 2017. Providing them with

direct and indirect employment opportunities through opening up of


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"HelaBojun Halls" whereby increasing the income of the family unit.

Providing employment opportunities through Healthy food shops.

Empowerment of women through establishment of "Sithamu

GoviKantha" Societies'. Educating them through formal and informal

education systems and Strengthening of the country's economy through

home gardening.

The poverty levels of the country have been declined, while higher

disparities remain at provincial and district levels, posing challenges in

terms of ensuring equitable economic growth. The Household Income

and Expenditure Survey (HIES)-2016 (DoCS, 2016) reveal that the

poverty level in the country, as reflected by the Poverty Headcount Ratio

(PHCR), has further declined to 4.1% from 6.7% in 2012/13. This decline

in the PHCR was seen in the urban, rural and estate sectors. However, in

comparison to the national PHCR, the estate sectors’ PHCR was

considerably higher. At the district level, Kilinochchi district recorded the

highest PHCR of 18.2%, while the lowest PHCR of 0.9% was reported

from the Colombo district. The number of people below the absolute

Official Poverty Level (OPL), stood at 843,913. At the district level, the

highest number of poor persons was recorded in the Kandy district,

while the lowest number was in the Mannar district (DoCS, 2016).

Poverty levels have steadily decreased during the past two decades,

while the disparity in terms of household income has marginally

declined. The income equality can be further improved by revisiting the

income redistributive policies of the country and improving economic

opportunities, particularly for poor households. Strategies to address this

issue include ensuring better education opportunities for the existing

labor force and future entrants while encouraging higher labor force

participation, particularly among the female population.

The government declared 2017 as the ‘Year of Poverty Alleviation’,

reiterating its commitment towards uplifting livelihoods in ensuring

inclusive growth in line with the SDGs. To achieve the target of no

poverty by 2030 under the SDGs, the Department of Samurdhi

Development (DSD) prepared and implemented a people empowerment

program in 2017, targeting to empower 125,000 families in the country.

The empowerment program aims to uplift poor families through

education, entrepreneurship and employment with livelihood

development, market promotion and model village programs together

with micro-finance facilities. Since financial inclusion is vital to enhance


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economic opportunities of the low-income earners, the formal financial

sector also should develop financial products appropriate for

underprivileged segments of the population. Continued investment in

safety nets would be an integral part of the poverty alleviation program.

6. Youth and Women to Promote Food Safety

The definition of food security is often applied at varying levels of

aggregation, despite its articulation at the individual level. At a global

level, it means availability of food without any shortages. Does global

agricultural activity produce sufficient food to feed the world? The

answer today is yes, but it may not be correct if the affecting factors are

considered such as growing world population, emerging plant and

animal pests and diseases, declining soil productivity and environmental

quality, increasing use of land for fuel rather than food, and lack of

attention to agricultural research and development, among other factors

(Matthew, 2018). Food security analyzed at the household level is

conditioned by a household’s own food production and household

members’ ability to purchase food of the right quality and diversity in

the market place. However, it is only at the individual level that the

analysis can be truly accurate only through understanding who

consumes and whether it could be appreciated the impact of socio-

cultural and gender inequalities on people’s ability to meet their

nutritional needs. Food utilization, essentially translates the food

available to a household into nutritional security for its members.

About 795 million people are still chronically hungry worldwide and

rising triple nutritional burden issue (under nutrition, micronutrient

deficiencies and obesity) (FAO, 2016) because of: i) Structural

transformationrapid urbanization, declining share of agriculture GDP,

rural to urban migration, raising inequalities; ii) Changing agro-food

systems commercialization and globalization, trade agreements, diet

diversification; iii) Impacts of climate change on agriculture and

emerging new risks (pests and disease problems).

The UN mandate”no one left behind” can be achieved through

meaningful participation of youth and women in agriculture and food

systems considering: i) women play a key role in rural economies; ii)

women are central to family food security and nutrition being

responsible for food selection and preparation and care and health of

children and family members; iii) youth are the potential farmers of


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tomorrow; iv) women and youth’s empowerment in agriculture and food

systems has a huge potential to end poverty and hunger; and v)

mainstreaming gender equality and targeting youth is a must in order to

unlock agriculture full productive potential and contribute to rural

development. Developing a strong enabling environment for gender

equality and women’s empowerment through raising awareness, policy

incentives and technical supports services.

Agriculture sector including fisheries, livestock and forestry is one of

major areas which has potential for development and absorb the young

generation as professional cultivators or entrepreneurs into agro based

industries and businesses. Though 70.4% of the youths are involved in

agriculture in different ways (full-time farmers, part-time farmers and

non-wage family laborers) only 27.8% of the youth are involved in full-

time farming. This ratio has increased 85-90% in cash crop cultivating

areas. Of those contributing for farming 24% are involved as nonwage

family laborers. In contrast, 7.3% of the youths are involved in agro based

industries and businesses (Damayanthi et al., 2013).

The number of reasons contributing to the reduction of youth

participation in full-time farming or agro based industries are: i)

Marketing problems including lack of accessibility and availability of

market facilities; ii) Uncertainty of price; iii) Tax removal for imports at

the harvesting seasons; iv) Increasing of cost of production and less

profitability and lack of social recognition; and v) Lack of resources such

as land, irrigation water and problems on trainings and extension

services. Since there is a trend towards high level of youth participation

in smallholder agriculture in commercial crop cultivation and livestock,

government can encourage youth for farming with the introduction of

high technology, facilities like land and water for group farming and

agro based industries, market facilities, entrepreneurial skills

development and giving some incentives for full time farmers to enhance

their social recognition. Though, there is potential to create income

opportunities and employments by, developing home based industries

and medium scale industries related to agriculture, relevant parties such

as NGOs, government and civil societies do not pay much attention.

Women’s work is often critical to the survival and security of poor

households. Despite the lower wage to the women labor, their economic

contributions have been shown to be the single most important element

in the survival strategy of both rural and urban households. Households,


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wherein women have access to their own incomes and can exercise

decision making powers, tend to have an expenditure pattern different to

the one existing in male dominated households. Research in several

developing countries of Asia, Africa and Latin America has found that

improvements in household food security and nutrition are associated

with women’s access to income and their role in household decisions on

expenditure. Thus, meaningful participation of women in agriculture and

food system would have significant impact in social, economic, food

safety, health, food security and nutrition.

7. Gaps in Food Safety

In recent years, however, public attention to and demand for safe food

has been growing, in response to an increased awareness of the

prevalence of foodborne diseases across the region. South Asia is subject

to higher food safety risks due to climate, diets, income levels and public

infrastructure. Lack of attention to food safety also has implications on

trade opportunities. Food safety is a moving target-food incident in one

country can quickly spread to a geographical area and plays a critical role

for importing countries. Compliance with food safety regulations and

standards is thus seen as a general prerequisite for market access. Some

ASEAN countries (for example, Thailand) have already put strong

measures in place to ensure the safety of their food, and have become

leading producers and exporters of agricultural produce worldwide.

CLMV (Cambodia, LaoPDR, Myanmar and Vietnam) countries have

similar potential, but without a concrete food safety control system, the

options for export to lucrative markets outside (Europe, USA and Japan)

as well as within the region remains limited.

In the process of ensuring food safety, increasing of food production

and minimizing food losses are key factors to be focused. Insufficient

knowledge of the people involved in the food industry, regarding their

aims, targets and latest techniques how those aims and targets to be

achieved, have become barriers for ensuring food safety. Therefore, while

designing, implementing and maintaining food safety measure, people

involved in the food industry to be educated, about their related areas.

Since heavy food losses occur in distribution process, all parties

involved in this process should be educated how it could be maintained.

It is clearly seen that with the increase of super markets and use of

freezer trucks for perishable food items for transportation purposes, food

losses are becoming low.


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Since it is clearly seen that educating people in the food industry

regarding their relevant areas while designing, implementing and

maintaining food safety measures, Sri Lankan government is increasing

education facilities in universities and in various Agriculture Training

Centers. But the question is whether the government has been able to

receive the total contribution of theses educated parties in the process of

achieving food safety in the country and in the South Asia region.


Following are some of the major laws, rules and regulations for

improving food safety in Sri Lanka:

Food Act No.26 of 1980.

There are 32 food regulations.

Standards established by the Sri Lanka Standards Institution

(SLSI) is SLS ISO 7002 (Agricultural food products), SLS 1192

(Limits for heavy metals in food).

National Food Safety Policy 2019.

National CODEX Committee (NCC) and National CODEX

Contact Point (NCCP).

Imports and Exports (Control) Act 1969.

Sri Lanka is a signatory to the National Trade Facilitation

Agreement (NTFA) of the World Trade Organization.

Sri Lanka has adopted ISO 9000 series standards on quality

management and assurance, ISO 14000 standards on environment-

management systems, Hazard Analysis and Critical Control Points

(HACCP) assurance for food-safety standards, and Good Manufacturing

Practice Certificate (GMP), ISO 22000 on food safety management.

Effective hygiene control is vital to avoid the adverse human health

and economic consequences of food borne illnesses, and food spoilage.

Since food safety beginning with the farmers themselves a “Farm to

Fork” approach is required in food control measures. This includes

farmers and growers, manufacturers and processors, food-handlers and

consumers have the responsibility to assure that food is safe and suitable

for consumption. The food control regulations incorporating ISO 22000,

HACCP (Hazard Analysis and Critical Control) GMP (Good

Manufacturing Practices) programs the emphasis on food safety control

is further strengthened.


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Different aspects of the food safety are implemented by many

Departments and institutions. DGHS is the Chief Food Authority (CFA),

functioning as the Chairman Food Advisory Committee (FAC) which

advices the Minister on matters arising during administration of the Food

Act. FAC consist of the representatives from the agencies implementing

the different aspects of the Act. The Food law is mainly handled by DHS

in the health ministry with the implementation is delegated to the local

authorities in the region.

Animal health is not represented at all, in any food control efforts

and with increasing farming industry this will become a serious lapse in

the future. In addition to these, farmed fresh foods are used for direct

consumption. The Consumer Authority also uses SLSI to implement food

standards, where a number of food standards are made mandatory for

SLS Mark. SLSI uses same standards for imports as well as to issuing of

SLS mark under the mandatory certification program. The standards are

obliged to keep in line with the food safety requirement of the food

regulations, but in addition there may be some additional requirement,

such as environment, radio-activity.

The food certification program (HACCP Certificates) issued for the

food handlers does not seem to be really effective with the increased

number of complaints against certified organizations. Under the Food

Act many regulations are issued addressing different aspects of the

industry. Already 27 regulations are issued and further 26 in the drafting

stage. The SLSI uses “accredited lab facilities” for ISO 17025, while the

food authorities use their own facilities as well as the Government

Analyst’s Laboratory.

Sri Lanka Standards Institution (SLSI) which was established under

an Act of Parliament in 1964, is the national standards body of the

country, having the primary function of formulation of national

standards to be used by all sectors of the economy. The Product

Certification system (the SLS Marks Scheme) with ISO 9001, ISO 14001,

GMP, and ISO 22000 provides training, laboratory services, information

services, calibration of equipment and quality check of the products are

some of the services.

A standard as defined by the International Organization for

Standardization (ISO), is a document established by consensus and

approved by a recognized body, which provides for common or repeated

use, rules, guidelines or characteristics for activities or their results,


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aimed at the achievement of the optimum degree of order in a given

context. Different types of standards are available such as:

Specifications which define characteristics for the products (e.g.

SLS 729:2010 Ready-To-serve fruit drinks).

Code of practice which give recommended practices for a given

activity/industry (e.g. SLS 872:2009 Code of hygienic practice for

dairy industry).

Test methods which define how a particular test is to be carried

out so that tests done at different laboratories are comparable

(e.g. SLS 516 Microbiological test methods).

Glossary of terms which help to have a common understanding

of words used in a particular industry/activity (e.g. SLS 71:1981

Glossary of tea terms).

Symbols which facilitate communication (e.g. SLS 809:1988

Recommended shipping marks for goods).

Standards are frequently referenced by regulatory bodies for

protecting user and business interests, and to support government

policies. National standards on food products have been adopted under

the Food Act and Regulations 2008 amendment 2013.

A Food Safety Management System can be applied to any

organization in the food chain, from farm to fork, is specified in the

International Standard ISO 22000, which has been adopted as a Sri Lanka

Standard. Applying the principles of HACCP system is important for

reducing the risk of safety hazards considering the biological, chemical

and physical aspects. Sri Lanka Standard Code of Practice for general

principles of food hygiene, SLS 143 gives general guidelines on the

necessary hygienic conditions for producing food, which is safe and

suitable for consumption throughout the food chain from primary

production to the final consumer.

Effective Food Control Services are required to promote a safe and

honestly presented food supply and protect the consumer against the

contaminated, decomposed or adulterated foods. For the effective

implementation of legislation, an infrastructure providing

administrative, inspection and analytical services is essential. Regulatory

practices to be carried out by the government through different

authorities and through local government authorities are very important


173

in order to ensure that the final consumer receive safe food and the

correct quantity at a reasonable price for their consumption.

9. Challenges and Opportunities of Food Safety

There is a growing concern about food safety issues in Sri Lanka with the

expansion of the food industries along with urbanization, increased trade

in fresh and processed foods.

Food safety issues remain a challenge to public health. Increased cost

of production of the processed foods is a major issue that faces the

challenges to compete with imported products. Mechanization in

agriculture, introducing high yielding crop varieties and improving

minimization measures of food losses are some remedial actions to be

addressed in hygiene and safe.

Lack of public attention on food safety is one of the major constraints.

Massive food safety campaign including education, training and capacity

building activities need to be enhanced towards food safety control

measures.

Leaders in food security should be aware about food safety as well,

and will have to develop an attitude of continuous learning, critical

thinking and be given the right tools (“know how”) to develop local

solutions to address the emerging societal and environmental challenges

to provide sufficient, safe, healthy, nutritious and sustainable produced

of food to the world’s population.

Governments should develop comprehensive food safety policies

and establish effective partnership amongst relevant stakeholders. This

requires leadership, political will, and a commitment to food safety,

especially in view of the competing priorities in the health agenda.

There are challenges in the process of food safety management how

we could increase food production with limited resources such as land,

labor and entrepreneurship. As land is a limiting factor, enhancing

productivity of crops maintaining environment is crucial responsibility of

the day. With an aim to maximize utilization of water, micro irrigation

systems have now been introduced to increase agriculture intensification.

Entrepreneurship always focus on high returns for the investment

they make. Therefore, the government has to play a major role to attract

more and more investors in food based industries. It is very important to

educate entrepreneurs, who are looking for investment opportunities in


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food based industries regarding modern advanced technology systems

which they can use for the success of their business, while maintaining

required standards in the products.

There are opportunities to ensure food safety with the expansion of

supermarket chains where food storing facilities are available with

required standards. With the development of the road network systems

in Sri Lanka transportation means of food items are improved, where

quicker and scientific systems have been adopted.


Given changing consumption patterns, people - especially in urban areas

tend to consume more convenient food products, traditional fast foods,

street foods which may not be hygiene and safe. Many such food

products are considered to have additives such as preservatives that

exceed permitted levels. Considering such factual behavior, following

recommendations are made in order to improve food safety:

i) Food producers

Pest control monitoring and detection.

Maintenance of specified levels of chemical usage in food

production process.

Proper cleaning and disinfecting food preparation areas Waste

management to meet the correct food safety regulations.

Maintaining personal and environmental hygiene.

ii) Food handlers and transportation

Ensure temperature and humidity requirement maintenance in

the process of food goes from producer to consumer.

Maintenance of hygiene in operation sites, vehicles and

containers use in food industry.

Safety and risk mitigation in the areas where food products are

packaged.

Maintenance of sanitation in the whole value chain process.

iii) Marketing (wholesaling and retailing)

Placement of stocks under required environmental conditions

such as temperature, ventilation etc. Attention to be given on

expiry date requirements while stocks are maintaining.


175

Ensure consumers’ awareness on consuming safe and hygiene

products purchased from either local markets or imported from

foreign markets.

Maintenance of cleanliness and sanitation in food stocking areas.

iv) Policy makers

Build and maintain adequate food systems and infrastructures

(e.g. laboratories) to respond to and manage food safety risks

along the entire food chain, including during emergencies.

Foster multi-sectoral collaboration among public health, animal

health, agriculture and other sectors for better communication

and joint action.

Integrate food safety into broader food policies and programs

(e.g. nutrition and food security).

Think globally and act locally to ensure the food produced

domestically be safe internationally.

v) Food handlers and consumers

Know the food they use (labels on food package, make an

informed choice, and become familiar with common food

hazards).

Handle and prepare food safely, practicing the WHO Five Keys

to Safer Food at home, or at restaurants or at local markets.

Grow fruits and vegetables using the WHO Five Keys to Growing

Safer Fruits and Vegetables to decrease microbial contamination.


Food safety is an important component of food security for millions of

people suffering from hunger and malnutrition in the South Asia region.

Although Sri Lanka has introduced several effective measures to ensure

that consumers receive safer foods, there are still more work to be

attended in order to address certain food safety issues. Just like food

security, there is no single solution for achieving food safety but several

well-coordinated efforts are required at the national, regional and

international levels. Appropriate policies and strategies to be adopted to

promote food safety in the agriculture and food systems and food trade.

Effective R&D on food safety, formulate and update policies and

legislation, awareness campaign and capacity building is crucial to


176

reduce the food borne diseases and improve the health of the people. The

government’s role to empower and engage of private sector to adopt

GAP, HACCP and other important food standardization system for

improving food safety. Effective food regulations, proper supervision

and inspection on food safety need to be effectively implemented for

assuring safe and hygiene foods, improving health of the consumers,

enhancing economy and sharing the prosperity of the country.

References

Bahuguna, K. (2015). Children under Five Account for 30% of Deaths due to Food

Borne Diseases Globally: World Health Organization, Switzerland.

Damayanthi, M. K. N., Samarasinghe, G. G. L. W., Bandara, M. A. C. S., Hitihamu, H.

M. S. J. M., Perera, S. (2013). Youth in Development in Sri Lanka, Colombo.

Dhanapala, D. S. B. (2019). Safe Food Makes Life Good. Retrieved July 16, 2019 from

https://www.dailynews.lk

DoCS. (2016). Household Income and Expenditure Survey 2016. Department of

Census and Statistics, Ministry of National Policies and Economic Affairs Sri

LankaGovernmentof Sri Lanka, Colombo.

FAO. (2016). Food Safety Laboratories in Sri Lanka. Ministry of Health, Nutrition &

Indigenous Medicine, Colombo, Sri Lanka.

Havelaar, A. H., Martyn, D. K. (2015). World Health Organization Global Estimates

and Regional Comparisons of the Burden of Food Borne Disease in 2010.

https://journals.plos.org/plosmedicine/article?id=10.1371/journal.pmed.1001923

Hussain, M. A. (2016). Food Contamination: Major Challenges of the Future.

Lakshani, P. W. Y., Rajapaksha, M. K. L. K., and Sendthuran, K. (2017). Pesticide

Residues in Selected Vegetables in Several Growing Areas by GC/MS Using

QuEChERs Technique. Annals of Sri Lanka Department of Agriculture 2017. 19 (2):

188-208

Lakshani, P. W. Y., Sumith, J. A., Rajapaksha, M. K. L. K., Bambaradeniya, R. R.M. L.

B., and Chaturangi, G. P. T. (2018). Pesticide Residues in Alternanthera Sessilis and

Centella asiatica Grown in Selected Locations in Sri Lanka. Annals of Sri Lanka

Department of Agriculture 2018. 20: 15

Magamage, C., Waidyaratne, W. H. M. C. U., Dhanapala, W. P. A. P., Panampitiya, D.

M. (2017). Determination of Heavy Metals in Rice Available in Kandy District, Sri

Lanka Annals of Sri Lanka Department of Agriculture 2017. 19: 351-368

Matthew, R.F. (2018). Environmental Biology Retrieved July 16, 2019 from

http://www.1 Food Security – Environmental Biology.

Wailer, G. A., and Fernandez, J. L. (2019). Food Safety is Everybody’s Responsibility.

World Health Organization. Retrieved July 16, 2019 from

https://www.who.int/philippines/news/commentaries/detail/food-safety-is-

everybody-s-responsibility

https://www.dailynews.lk/

https://journals.plos.org/plosmedicine/article?id=10.1371/journal.pmed.1001923

https://www.who.int/philippines/news/commentaries/detail/food-safety-is-everybody-s-responsibility

https://www.who.int/philippines/news/commentaries/detail/food-safety-is-everybody-s-responsibility

Report of the Regional Expert Consultation Meeting

on "Food Safety: Current Status, Challenges and

Policy Perspectives in South Asia”

Introduction

SAARC Agriculture Centre (SAC) organized a SAARC Regional

Consultation Meeting on "Food Safety: Current Status, Challenges and

Policy Perspectives” in Dhaka, Bangladesh on 26-28 August 2019. The

program was jointly organized by the SAARC Agriculture Centre (SAC)

and the BSAFE Foundation. The consultation program aims to discuss

the current situation of food safety, issues, challenges and way forward

to overcome the issues/challenges in the SAARC Region.

Dr. Muhammad Abdur Razzaque MP, Honorable Minister, Ministry

of Agriculture, Government of the People’s Republic of Bangladesh was

graced the SAARC Regional Consultation as the Chief Guest. Mr. Md.

Nasiruzzaman, Secretary, Ministry of Agriculture, Government of the

People’s Republic of Bangladesh was present as the Special Guest. Ms.

Syeda Sarwar Jahan, Chairman, Bangladesh Food Safety Authority

(BFSA) and Dr. Md. Kabir Ikramul Haque, Executive Chairman, BARC

were present as Guests of Honor. Dr. Mohammed Zainul Abedin,

President, BSAFE Foundation presided over the Inaugural Function.

Dr. Debashish Mazumder, Senior Research Scientist, Project Lead-

Food Provenance Environmental Research, Australia was as a Key Note

Speaker on “Towards the Development of Food Safety and Traceability

Tools for Sustainable Human Health and Business: A Need for Larger

Cooperation” of the Program. The inaugural session of the consultation

meeting was attended by more than 300 participants from different

institutions and organizations of SAARC Member Countries includes

Afghanistan, Bangladesh, Bhutan, India, Maldives, Nepal, Pakistan and

Sri Lanka. The program was coordinated by Dr. Md. Younus Ali, Senior

Technical Officer, SAC, Dhaka.

Major Recommendations

The major recommendations of the regional consultation meeting are

described below.

Making awareness among the people, consumers and food actors

about importance of assurance of food safety, since each and


178

every individual has to play a big role in it and foster a food

safety culture to improve food safety.

Intensify consumer education, training and awareness.

Awareness building on toxic contaminants at mass level.

Develop regulatory framework, directives and guidelines on food

safety management.

Continuous support of the government for effective Food Safety

Regulatory Framework (FSRF).

Regional networking on FSRF & Food Safety Innovations (FSI).

Collaborate, cooperate and build trust amongst the various food

safety agencies in the region.

Establish platforms for multidisciplinary/ multi-agency

collaboration and coordination.

Development of regional standards and co-ordination of food

controls where appropriate.

Capacity building and making enabling environment of

farmers/producers and processor from Farm to Fork in order to

implement food safety management system.

Establish Food Safety Reference Laboratory of International

Standards.

Functioning of Food Safety Authority (FSA) as the National

Coordination Authority (NCA).

Promotion of Good Agricultural Practices (GAPs) on primary

production of food.

Report of the Regional Expert Consultation Meeting

179

Pictures of the Program

Dr. S.M. Bokhtiar, Director, SAC handed over the Crest to the Hon’ble Chief Guest

SAARC Member Countries participants with the Chief Guest

Participants List

Mr. Ahmed Faridon Kaker

Head of Regional Cooperation

Ministry of Agriculture Irrigation and Livestock, Afghanistan

Phone: +93799213295; Email: [email protected]

Mr. Abu Shahid Saleh Mohammad Zubery

Director

Bangladesh Food Safety Authority, Bangladesh

Phone: +88-01720002989; Email: [email protected]

Ms. Gyem Bidha

Deputy Chief Laboratory Officer

Food Section, Bhutan Agriculture and Food Authority Regulation

Bhutan. Phone: +97517718471; Email: [email protected]

Mr. Vishwajeet Haladar

Deputy Commission (S&R)

Department of Food and Public Distribution, Government of India.

Phone: 00-91-9903932562; Email: [email protected]

Aishath Shaufa Shareef

Scientific Officer

Maldives Food Drug Authority (MFDA), Maldives


Dr. Bal Kumari Sharma Khanal

Food Research Officer

Ministry of Agriculture and Livestock Development, Government of Nepal

Phone: +977 9841431749; Email: [email protected]

Mr. Saif Ullah Janbaz

Deputy Secretary (IC)

National Food Security and Research, Islamabad, Pakistan.

Phone: +92 0321-5339557; Email: [email protected]

Ms. H.M. Gammanpila

Principal Agriculturist (Fruits)

ETC, DOA, Sri Lanka.

Phone: 00-94-714497059; Email: [email protected]

Dr. Debashish Mazumder

Senior Research Scientist

Project Lead-Food Provenance-Environmental Research, Australia











Participants List

181

Dr. Jesmond Sammut

Associate Professor

School of Biological, Earth and Environmental Science

University of New South Wales (UNSW), Sydney, Australia.


Mr. Anshuman Das,

Program Manager, Welthungerhilfe, India,

Phone: +91 9051094944; Email: [email protected]

Dr. Md. Younus Ali

Senior Technical Officer & Program Coordinator

SAARC Agriculture Centre (SAC), Dhaka, Bangladesh


Dr. SM Bokhtiar

Director



Dr. Rudra Bahadur Shrestha

SPS (PSPD)



Dr. Syed Monowar Hossain

Member

BSAFE Foundation, Dhaka, Bangladesh.

Dr. Syed Arif Azad

Member

BSAFE Foundation & Ex- Director General

Department of Fisheries, MoFL, Bangladesh.

Dr. Anisur Rahman

Member


TIM Zahid Hossain

Member


Dr. Tajul Islam

Member








182

Dr. Saleh Ahmed

Member

BSAFE Foundation, Dhaka, Bangladesh

Dr. Md. Abdur Razzaque

Member


Shakiul Millat Morshed

Member


Mohidul Haque Khan

Member


Ataur Rahman Miton

General Secretary, BSAFE Foundation

Dhaka, Bangladesh

Email: [email protected]; Phone: 017 0707 2021


Biobrief of Paper Contributors

Dr. Rudra Bahadur Shrestha is Senior Program

Specialist (Policy Planning), SAARC Agriculture

Center, Dhaka; Visiting Professor in different

universities; Author, Editor and Reviewer of journals,

books, book chapters and policy papers.

Dr. Bal Kumari Sharma Khanal is Food Research Officer at the Ministry of Agriculture and Livestock Development, Nepal. Her job experience is 16 years. Dr. Khanal completed her PhD in Food Sciences and Technology in 2018 from the University of Queensland, Australia. She received her Master's Degree from Asian Institute of Technology (AIT), Thailand and Bachelor's Degree from the Central Campus of Technology, Tribhuwan University, Nepal. She has dozens of publications in international journals and books.

Mr. Ahmed Faridon Kaker is Head of Regional

Cooperation in the Ministry of Agriculture, Irrigation

and Livestock, Afghanistan.

Dr. Abu Shahid Saleh Mohammad Zubery is Director,

Bangladesh Food Safety Authority, Bangladesh.

Ms. Gyem Bidha is Deputy Chief Regulatory and Quarantine Officer under the Bhutan Agriculture and Food Regulatory Authority (BAFRA), Ministry of Agriculture and Forests (MOAF), Bhutan. She is responsible for overall food safety plans and programs in the country and is also the National INFOSAN Emergency contact point for Bhutan. She holds a Master’s Degree in Agriculture Systems and Engineering with co-major in Advanced Bioprocess Technology Applications from the Asian Institute of Technology, Bangkok. Thailand.


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Mr. Vishwajeet Haladar is Deputy Commission (S&R),

Department of Food and Public Distribution,

Government of India.

Ms. Aishath Shaufa Shareef is a Scientific Officer and Head of the Risk Analysis and Product Registration Unit in the Food Control Division of the Maldives Food and Drug Authority. Shaufa achieved a BSc (Hons) in Biochemistry in 2015 and MSc with Distinction in Clinical Biochemistry in 2018 from the University of Manchester. Shaufa also works as a part-time Lecturer at the Maldives National University.

Mr. Mohan Krishna Maharjan is a Senior Food Research Officer, In-Charge of Sanitary and Phytosanitary (SPS) National Enquiry Point and Spokesperson of Department of Food Technology & Quality Control. His job experience is 22 years. He has completed MPS-FNP from University of Philippines Los Banos, Philippines and MSc in Botany from Tribhuvan University. His areas of expertise are SPS, food safety and quality control, inspection and certification, GAP/GHP/GMP/HACCP/food safety.

Mr. Saif Ullah Janbaz is Deputy Secretary in Ministry of National Food Security and Research, Islamabad, Pakistan with 25 year experience. His responsibilities include coordination with international and regional organizations as well as bilateral and multilateral cooperation in the areas of agriculture, livestock, fisheries, food security, food safety and research & development.

Ms. Himani Gammanpila is Principal Agriculturist (Fruits) in Department of Agriculture, Sri Lanka.

Himani has experience in training and agricultural technology dissemination to parties involve in the field of agriculture for a period of over 26 years. She holds Agriculture Degree from the University of Peradeniya, Sri Lanka and has also completed MSc Degree in the field of postharvest technology of fruits and vegetables in the same university.

food safety in south asia - saarc agriculture centre

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