Environment, Food and Rural Affairs CommitteeWritten evidence submitted by FSA
Introduction
1. The Environment, Food and Rural Affairs Committee has invited the Food Standards Agency (FSA) to give further evidence, following the publication of its report ‘Contamination of Beef Products’. The FSA has contributed to the Government response to this report and is submitting this additional written statement in advance of the committee hearing on 14 May 2013.
Government Response
2. At the outset of this incident, on 16 January 2013, the Prime Minister asked the FSA to launch an urgent investigation in response to the findings of the Food Safety Authority of Ireland (FSAI) study published the previous day, and we immediately published an action plan for this investigation. We have progressed this and continue with our investigations into the origin of instances of gross adulteration, working closely with others, including Local Authorities, the police and their counterparts across Europe, in a complex and far-reaching investigation. The FSA recognises the role that all organisations, especially Local Government in the four countries of the UK, have played in responding to this incident. We are preparing a report on this for the Prime Minister.
3. The FSA has sought to keep the public informed throughout this incident with regular updates on our website. The FSA Board has been regularly updated, including through oral reports by the Chief Executive to three Open Board Meetings. In addition, up to 3 May 2013, the FSA has handled 62 Freedom of Information requests and responded to Westminster on 82 Parliamentary Questions (and 17 contributions), 25 Ministerial Correspondence, and 102 Treat Official correspondence, since this incident started in January.
UK And European Sampling Programme
4. Further to the information provided in the Government response to the Committee’s report, sampling programmes have continued. The FSA UK-wide survey, undertaken by Local Authorities, has been completed and where levels over the 1% threshold are confirmed details have been published. The final report of this will be published by the end of May. At our request industry also carried out an unprecedented testing programme of beef products in the supply chain and on sale across the UK to provide reassurance that food was accurately labelled and to take appropriate action in the event gross adulteration was found.
5. Industry test results were reported and published weekly by the FSA from 15 February 2013. The final publication of weekly results was 1 March 2013 by which time 5,430 tests had been completed by industry, covering the majority of product lines in the manufacturing, wholesale, retail and catering chain. The results from the industry testing were consistent with the local authority testing programmes, confirming that the adulteration was limited to a relatively small number of products. As at 23 April 2013, a total of 24 products in the UK were identified as containing horse DNA at or over the 1% threshold. The results indicated that, in both the industry and local authority testing, over 99% of all samples tested (5,944 samples) did not contain horse DNA at or over the 1% threshold.
6. Investigations by authorities across Europe have identified multiple instances of the adulteration of comminuted beef products. On 21 February the European Commission published a Recommendation for testing to be carried out for the presence of horsemeat throughout the food supply chain and for the presence of phenylbutazone (bute) in horses at slaughter for human consumption. The results of this EU wide testing programme were published on 16 April. Of 4,144 tests by competent authorities for horse DNA, 193 were positive for traces of horsemeat DNA. The UK carried out 150 tests as part of this EU testing programme with no samples testing positive for horse at or above the 1% threshold for reporting.
7. Since 11 February, the FSA has operated a ‘positive release system’ at horse slaughterhouses in the UK, where every horse carcass is sampled for the presence of residue from the veterinary medicine phenylbutazone (bute). Carcasses are only released from the slaughterhouse if no bute is found. From 11 February to 3 May 2013, of 1145 carcasses tested for bute, 20 carcasses have been found to contain bute and prevented from entering the food chain. In the UK the FSA has also required all foods testing positive for horse DNA at or above the 1% threshold to be tested for the presence of bute. To date only one product identified as part of the industry and LA testing programmes has tested positive for bute, and this was at very low level (4 parts per billion), close to the limit of detection. Across Europe, 3,115 samples were tested for bute following the European Commission Recommendation, with 16 positive results. The Chief Medical Officer has issued a statement as part of the UK response to the incident confirming that horsemeat containing bute presents a very low risk to human health. This view has been endorsed by the European Food Safety Authority and European Medicines Agency in a recent joint statement.
8. Industry is continuing to test products for the undeclared presence of horse and reporting results to the FSA. The FSA will publish the results of the current industry testing quarterly. The next collated report will be published in early June although industry continues to report immediately to the FSA any product testing positive for horse above the 1% threshold.
Future UK Work Programme
9. The FSA are liaising with industry on measures to increase the transparency of controls and on the testing carried out by industry, and on necessary measures to improve intelligence and assurance across the food chain.
10. The increasing sensitivity of DNA tests also raises issues about action that should be taken in response to the detection of extremely low levels of DNA from an undeclared species in a meat product, even when processors are adhering to good hygiene, cleaning and manufacturing practices. While the 1% threshold has been supported in the UK and in Europe as a pragmatic reporting level above which gross adulteration is likely to have occurred, there is a need for more information on how best to define and control trace or adventitious contamination. The FSA is working with Defra and key industry stakeholders on a study, through the Laboratory of the Government Chemist, to look at the issue. This work will inform discussion at UK and EU level and with industry on the action levels and controls which should be adopted by both industry and regulators in the longer-term for assuring the integrity of meat products.
European Work Programme
11. Following the Secretary of State’s role in seeking agreement for rapid action at the European level, we have continued to support further developments and discussions. We have pressed the European Commission to consider ways of improving the sharing of information and intelligence, which will enable food and law enforcement authorities to coordinate investigations across the continent, this could perhaps involve changes to the current RASFF system. We have submitted evidence to Europol.
12. The European Commission has presented a proposal for a 5-point action plan including measures dealing with food fraud, testing programmes, horse passports, official controls and origin labelling. This was discussed at a meeting of the Standing Committee of the Food Chain and Animal Health (SCoFCAH) on 19 April 2013. Members agreed at that meeting to the cessation of EU-wide testing for now, with the intention to undertake a further phase of testing at an unspecified time in the future. The Commission also announced that it is establishing a Food Fraud section and are planning to resource this with subject matter experts seconded from Member States.
Learning the Lessons
13. Following agreement by its Board, the FSA has commissioned an independent external review to learn the lessons of the horsemeat incident. This review is being led by Professor Pat Troop, and will report by the end of June 2013. The findings from this will feed into the wider Government Strategic review of this incident.
Timeline
14. A chronology of key events is attached to 3 May 2013.
Timeline
|
Date |
Detail |
|
Early-mid Nov 2012 |
*Food Safety Authority of Ireland (FSAI) start sampling burgers |
|
23/11/2012 |
FSANI senior management meeting with FSAI. FSAI said they were developing a methodology for testing for horse DNA. Food Standards Agency in Northern Ireland (FSA NI) agreed a possible joint sampling initiative at some time in the future should the methodology prove robust. |
|
End Nov 2012 |
*FSAI received first results |
|
Mid Dec 2012 |
*FSAI collect further samples for testing |
|
21/12/12 |
*FSAI is aware of a possible issue in relation to trace amounts of horse DNA and pig DNA in some products. |
|
Mid-late Dec 2012 |
*FSAI samples sent to Germany for confirmatory tests |
|
10/01/13 |
FSA Chief Scientist spoke to FSAI CE, as part of their regular contact. FSAI Chief Executive (CE) refers to authenticity checks on meat products and agreed to share results as soon as they are confirmed. |
|
11/01/13 |
*FSAI receive test results |
|
14/01/13 |
*FSAI inform Silvercrest and Liffey foods |
|
14/01/13 |
FSAI CE rang FSANI Director to inform him of investigation outcomes. |
|
14/01/03 |
FSAI CE rang FSA Chief Scientist. |
|
14/01/13 |
FSAI CE advised FSA NI Director that FSAI was intending to meet with industry the following day. No indications that communications/media were intended at this stage. |
|
14/01/13 |
FSA Incidents Team notified by FSA NI of survey undertaken by FSAI finding horse DNA in beef products. |
|
15/01/13 |
FSAI informs retailers of the survey results. |
|
15/01/13 |
FSAI makes a public announcement regarding the test results. |
|
15/01/13 |
FSAI issues Press release with FSAI survey results. |
|
15/01/13 |
FSA Board, Department of Health, Department of Environment Food and Rural Affairs (Defra), and Ministers notified of incident. |
|
16/01/13 |
Prime Minister (PM) questions. PM charges FSA with urgent investigation. |
|
16/01/13 |
FSA issues first statement in response to FSAI findings and announces urgent investigation, the voluntary withdrawal of potentially affected products by retailers and the FSA issues a 4-point plan. |
|
16/01/13 |
Scoping Meeting held in Aviation House—TESCO attended meeting and confirmed that they were undertaking their own investigation into practice and procedures at Silvercrest. |
|
16/01/13 |
Update submissions issued to Ministers which provides details of the 4-point plan. |
|
18/01/13 |
Update teleconference between FSAI and FSA to discuss latest positions regarding the incident and share information. |
|
18/01/13 |
Defra/FSA officials meeting with industry to discuss incident and seek information on how the supply chain is checked and monitored. |
|
19/01/13 |
FSAI update web story and table of sampling results |
|
21/01/13 |
FSA received results of further testing of Silvercrest product in Republic of Ireland from FSAI |
|
21/01/13 |
FSAI Press Release—Minister Coveney (Republic of Ireland) announces further laboratory test results, Liffey Meats burger test results clear |
|
22/01/13 |
Information about methodology for DNA testing using in the survey published on 15 January obtained from FSAI |
|
22/1/13 |
FSA Chief Executive updates FSA open Board meeting on the horse meat incident |
|
23/01/13 |
FSA meeting with ABP to discuss incident and share information. |
|
24/01/13 |
Defra Minister of State and officials met with BMPA for an update on industry’s reaction to the FSAI survey. BMPA outlined what checks are in place to ensure that processors/suppliers know what is in their products, and what further steps industry is taking in response to this incident. |
|
24/1/13 |
FSA issues statement that horses that have been treated with the drug phenylbutazone (bute) are not allowed to enter the food chain and that regular enhanced sampling and testing is carried out for phenylbutazone in meat from horses slaughtered in the UK. |
|
25/01/13 |
FSA update website with details of testing at the Dalepak plant by North Yorkshire Trading Standards—results are negative for horse and pork DNA. |
|
26/1/13 |
Minister Coveney (Republic of Ireland) issues statement identifying source of 29% horse DNA in burgers as being meat from Poland. |
|
1/2/13 |
FSA announces that it has called an urgent meeting of retailers and suppliers, to take place on 4 February, following Ministry of Justice statement about pork DNA discovered in Halal meat products served in prisons. |
|
4/2/13 |
FSA announces that it has agreed with the food industry to publish the results of routine industry testing of meat products; FSA also announces that horsemeat had been found in Northern Ireland cold store. |
|
6/2/13 |
The Agency publishes the protocol for the UK-wide survey of food authenticity in processed meat products as set out in the 4-point plan. |
|
7/2/13 |
FSA statement that the meat content of Findus beef lasagne products have tested positive for more than 60% horse meat and products previously recalled. FSA also announces that it is requiring a more robust response from the food industry in order to demonstrate that the food it sells and serves is what it says it is on the label, and demands that food businesses conduct authenticity tests on all beef products, such as beef burgers, meatballs and lasagne and provide the results to the FSA. The tests are for the presence of horse meat. |
|
8/2/13 |
FSA publishes update webstory on horsemeat investigations and Aldi withdrawal of two beef products after tests find between 30% and 100% horse meat in samples. |
|
9/2/13 |
Secretary of State, Defra holds 1st summit between Defra, FSA and representatives from the food industry regarding the ongoing contaminated meat incident, it was agreed that the industry would deliver meaningful results from its testing programme by 15 February. |
|
10/2/13 |
FSA issues interim advice to public institutions, such as schools and hospitals, caterers on procurement and reminds them to check meat supplies. |
|
11/2/13 |
FSA announces that it has begun a system for ‘positive release’ for horses slaughtered in the UK, which requires horse carcases to have tested negative for bute before being released into the food chain from UK slaughterhouses. |
|
12/2/13 |
2nd summit meeting held with industry. |
|
12/2/13 |
FSA and police enter two meat premises, one in West Yorkshire and the other in West Wales, involved in alleged supply of horse meat. |
|
13/2/13 |
FSA suspended approval on both plants (Peter Boddy Licensed Slaughterhouse in West Yorkshire and Farmbox Meats Ltd in Aberystwyth), meaning that neither plant could then operate. |
|
13/2/13 |
Secretary of State, Defra attended Informal Ministerial meeting with Commissioner Borg and other affected Member States. European Commission proposes that all Member States carry out DNA tests for horsemeat for one month from 1 March (with preliminary findings to be reported after 30 days). |
|
14/2/13 |
Arrests made at Farmbox Meats Ltd and Peter Boddy. |
|
14/2/13 |
FSA officials, accompanied by Local Authority Enforcement Officers and police, entered a further 3 premises in England and seized documents and computer equipment. Samples were also taken. |
|
15/2/13 |
First set of industry test results of beef products published by FSA. |
|
15/2/13 |
Standing Committee of the Food Chain and Animal Health (SCoFCAH) Meeting, at which Member States agree a Commission Recommendation for a coordinated control plan to sample and test meat products for horse DNA and bute across the EU |
|
18/2/13 |
European Parliament debate which Director General, for Health and Consumers (SANCO) attended to answer MEP questions on horsemeat issue. |
|
19/2/13 |
Commission Recommendation adopted by Standing Committee |
|
19/2/13 |
French authorities publish report into Comigel suppliers |
|
19/2/13 |
FSA publishes details of the expanded UK-wide survey of food authenticity being carried out through local authorities. |
|
20/2/13 |
Committee of Agriculture and Rural Development (AGRI) of the European Parliament meeting at which there was an exchange of views with Commissioner Tonio Borg, Health and Consumer Policy on horsemeat issues. |
|
21/2/13 |
FSA publishes latest webstory updates on products withdrawn because results positive for at least 1% horsemeat. |
|
22/2/13 |
Second tranche of industry test results published by FSA |
|
28/2/13 |
Horsemeat issue discussed at European Parliament Committee on the Environment, Public Health and Food Safety. |
|
28/2/13 |
FSA publishes further details of the expanded UK-wide survey of food authenticity being carried out through local authorities. |
|
1/3/13 |
Third tranche of industry test results published by FSA |
|
5/3/13 |
FSA Chief Executive updates FSA open Board meeting on the horse meat incident. |
|
7/3/13 |
FSA lifts the suspension of approval for Peter Boddy to operate as an approved slaughterhouse and cutting plant. |
|
8/3/13 |
FSA announces it has lifted its suspension of Farmbox Meats Ltd. |
|
8/3/13 |
FSA publishes first set of local authority sampling results from Phases 1 and 2 of FSA meat testing survey. |
|
18/3/13 |
FSA announces that it has granted conditional approval (to 5 April 2013) to Farmbox Meats Ltd. |
|
20/3/13 |
Letter from Comissioner Tonio Borg presenting Commission 5-point plan including measures dealing with food fraud, testing programmes, horse passports, official controls and origin labelling. |
|
22/3/13 |
FSA is informed by Lancashire County Council that it has identified 100kg of horse meat imported from Hungary labelled as beef. |
|
26/3/13 |
FSA publishes updated local authority sampling results. |
|
5/4/13 |
Farmbox Meats Ltd informed 6-month deadline has expired and therefore cannot undertake activity for which approval would be required |
|
9/4/13 |
FSA publishes further local authority sampling results and that very low levels of phenylbutazone (bute) have been found in 340g tins of Asda Smart Price Corned Beef. Asda recalls the product. |
|
12/4/13 |
FSA notifies European Commission that all 150 samples of UK beef products tested in response to the European Commission Recommendation are negative for horse DNA at the 1% reporting threshold. |
|
12/4/13 |
FSA report to European Commission under Commission Recommendation 2013/99/EU of bute tests since positive release instigated at slaughterhouses |
|
15/4/13 |
Joint Assessment from European Food Safety (EFSA) and European Medicines Agency (EMA) on bute concluded that the illegal presence of residues of phenylbutazone in horsemeat is of low concern for consumers due to the low likelihood of exposure and the overall low likelihood of toxic effects. |
|
16/4/13 |
European Commission publishes the results of the EU-wide testing for horsemeat DNA and bute. |
|
17/4/13 |
FSA Chief Executive updates FSA open Board meeting on the horse meat incident. FSA Board agrees that an independent review of the FSA’s handling of the incident should be carried out. |
|
23/4/13 |
FSA confirms the final result for the remaining sample taken as part of the Agency’s UK-wide sampling programme of beef products. |
|
24/4/13 |
First meeting of Police Gold Group (strategic co-ordination of police elements on ongoing investigations) held. |
May 2013