Banning poultry slaughtering at traditional markets; maintaining the safety of meat for human consumption; maximizing defenses against avian influenza

When the Animal Industry Act passed in 1998, Article 29 of that law stipulated only that pigs, cattle, and sheep had to be slaughtered in licensed slaughterhouses for the meat to be sold for consumption. Chickens, ducks, and geese were not covered under this provision. However, the COA, aiming to ensure the safety of poultry for consumers, also began to weigh appropriate adjustments to the rules governing the poultry industry.

In 2003, taking into account consumer habits and the livelihoods of those in the traditional poultry slaughtering business, the COA announced that as of July 1, 2004, the following rules would go into effect: With the exception of (a) slaughtering done in the home for provision of food to family members or guests, or (b) slaughtering done by butchers operating in traditional markets or in temporary congregations of vendors (e.g. a short-term retail market), all other slaughtering of chickens, ducks, or geese for human consumption would have to be done in slaughterhouses. This step formally brought poultry within the scope of rules governing slaughterhouse management.

In 2006, at the third National Security Summit Conference, during discussions of strategies to minimize the possibility of avian flu entering Taiwan, the conference concluded: (a) that there was a possibility that the H5N1 avian influenza virus could be transmitted to humans, and moreover, (b) given Taiwan’s location as a stopover for migratory birds and as a hub of international travel, there was a high risk that the virus could enter Taiwan. To maximize defenses against infection, in 2006 the COA began to promote the idea of banning slaughtering of live poultry at traditional markets.

It was originally announced that the policy would go into effect on April 1, 2010. However, given long-established consumer habits, and taking into account the needs of the industry and convenience for consumers, adjustments were made to the measures regulating slaughtering for retail sale, and the adjustments were announced before the original policy was to go into effect.

In March of 2013, there was an outbreak of H7N9 avian influenza in mainland China, quickly followed by cases of human infection and death. On April 16, 2013, the “Central Epidemic Command Center for H7N9 Influenza” decided at a meeting that the COA should move toward implementation of the policy of banning poultry slaughtering at traditional markets. Then on April 25, 2013, there was a confirmed diagnosis of an individual entering Taiwan from abroad who was infected with H7N9, the first such case to occur.

The COA, taking into account the health of citizens and the need to prevent any spread of avian influenza, decided to move ahead the date for implementation of the policy. On May 14, 2013, acting on the basis of the authority invested in the COA by Article 29 of the Animal Industry Act, we announced that as of May 17, 2013, all chickens, ducks, and geese slaughtered for human consumption would have to be slaughtered in slaughterhouses, while at the same time we announced the exemptions to this rule.

Since the implementation of this policy would have an immediate impact on butchers operating their stalls in traditional markets, the COA also pro-actively coordinated with other ministries and agencies to take a number of measures to moderate this impact while also upgrading the industry as a whole, such as: (1) assisting live-poultry butchering stalls to shift to other services; (2) improving poultry hygiene and safety for consumption; (3) reorganizing the poultry production, slaughtering, and marketing structure; (4) strengthening enforcement of the law against violators; (5) collecting data about, and preparing to respond to any possible incidents of, influenza; and (6) explaining the policy to, and communicating with, stakeholders who would be most affected by the ban.

Decisions about the governance of poultry slaughtering in Taiwan have been based on a variety of factors, including: (i) daily habits of citizens buying poultry, (ii) the supply and marketing relationships of the slaughtering industry and retail sellers of poultry meat, and (iii) avian influenza prevention. Moreover, these decisions have been promoted and implemented in a gradual and planned manner, alongside essential corollary measures. In order to make it possible for the ban on poultry slaughtering at traditional markets to be completely successful, the COA has guided the construction of additional poultry slaughterhouses; the number rose from 18 in 2004 to 91 in 2013, and an additional 34 are under construction. The COA has increased inspection and testing of the slaughtering of traditionally-raised chickens from a previous figure of 86,000 per day on average to the December 2013 figure of 210,000 per day. Finally, we have taken appropriate steps to ensure that there are no supply bottlenecks during traditional festivals and holidays, when demand for poultry is higher than normal.

As a result of repeated communication, research, discussion, and guidance conducted between the COA and all parties affected, we have made it possible to implement the ban on poultry slaughtering at traditional retail markets. This policy further adds to the foundations of a fully modernized meat supply system and policy framework in Taiwan, covering the entire chain from production and slaughtering to transport and sale.

Strengthening measures to monitor, control, and prevent the spread of rabies; constructing a comprehensive rabies prevention network

In 1999 and 2008, the COA initiated monitoring and testing of dogs and bats, respectively, for rabies. By the end of 2012, a total of 7168 animals had been tested, and no cases of rabies virus were found. Given that a number of emerging infectious diseases have originated with wild animals, in 2012 the COA began to subsidize National Taiwan University and National Pingtung University of Science and Technology to conduct monitoring and disease-testing of wild animals that died or became ill. In 2013, we added testing of carnivores for rabies infection.

In 2013, at National Taiwan University, as veterinarians performed autopsies on three Formosan ferret-badgers that had been collected as part of routine disease monitoring, they discovered a case which appeared to be infected with rabies. Following other tests, conducted by the COA’s Animal Health Research Institute, a meeting of the “Rabies Task Force” confirmed the diagnosis of rabies. The next day the COA notified the World Organisation for Animal Health. On July 23, in Taitung County, a ferret-badger that had bitten a citizen was confirmed as having the rabies virus. Following this incident, on July 24, the COA formed the “Rabies Multi-Ministerial Task Force.” On July 30, in Taitung City, there was a confirmed diagnosis of rabies in a house shrew, giving rise to concerns that the disease was spreading. The government then decided on full-scale epidemic response measures, and on August 1 the Ministry of Health and Welfare formed the “National Rabies Command Center.” This brought together relevant ministries in regular meetings to discuss the situation and assess preventive measures, in hopes of bringing the situation under control as rapidly as possible.

In order to gather sufficient data to monitor the rabies outbreak, in 2013 the COA oversaw the following testing: (a) 1019 cases of carnivorous animals, (b) 64 cases of bats, (c) 1553 cases of dogs, (d) 112 cases of cats, and (e) 341 cases of other wild animals. Except for 276 cases of ferret-badgers, the one case of a house shrew, and one puppy that had been bitten by a ferret-badger that had tested positive (after which the puppy was isolated and quarantined), all other tests for rabies came up negative. This indicated that the rabies problem in Taiwan was mainly confined to wild ferret-badgers living in mountainous regions. We then focused our attention on creating a prevention zone around these areas by stepping up rabies-vaccination coverage for dogs and cats in higher-risk areas. Animal vaccination units in local governments began to strengthen patrols and testing, and in higher-risk areas began providing free vaccinations for dogs and cats. In order to assure an adequate supply, the COA made an emergency purchase of 500,000 units of vaccine, coordinated private companies in importing vaccines, and took steps to streamline the testing process for vaccines.

In addition to the above measures, the government also launched a full-scale public health information campaign to reduce fears among the general public. This campaign included the following measures: (1) setting up a special rabies web page; (2) setting up a toll-free number to report suspected cases or make inquiries; (3) frequently disseminating rabies-prevention health- education through media channels; (4) regularly holding press conferences to keep the public informed about the situation; and (5) holding lectures and seminars, and giving interviews, to distribute information about rabies.

In order to gather a wide range of opinions from experts, on August 14 and 26 the COA invited experts from relevant fields and representatives of relevant agencies to meet in order to discuss and evaluate the rabies situation and policies. To learn from the experience of other countries, on August 30-31 the COA hosted an international conference and invited experts from mainland China, France, the US, and the Philippines.

To avoid having stray or homeless animals becoming transmission vectors for rabies, the COA supervised local governments in improving management of these animals. Besides stepping up monitoring and testing of animals in shelters and their full immunization, the COA expanded shelter capacity from 7,035 animals to 10,110. To reduce public pressure to euthanize animals, we cooperated with animal welfare organizations to step up promotion of animal adoption. In addition, in September and October, we started free rabies vaccinations as well as free implantation of ID chips and registration for cats and dogs not only in high-risk areas and in private animal shelters, but also for animals elsewhere in the country. As the rabies outbreak was brought under control, rabies prevention work entered the phase of medium- and long-term planning. On December 24, the National Rabies Command Center was decommissioned, and its members returned to their regular work.

Promoting new thinking about food supply; raising rice quality and amending relevant laws and regulations; restructuring the production and marketing order

Raising the quality and market competitiveness of domestically produced rice

(1) In order to raise the quality of paddy rice right from the very start of its production process, on October 31 of 2013 the COA announced a list of “premium rice strains” that it would promote in 2014. After inviting comments from scholars and experts, government agencies, and people in the rice business—who assessed rice strains based on taste, production volume, adaptability for cultivation, and texture—28 “premium rice strains” were selected. From among these, farmers can select the strains that are most suited to their locales and conditions. The list includes the 13 varieties of paddy rice that are currently the most commonly cultivated in Taiwan, plus seven newly added varieties that are suited for ordinary daily consumption. In addition, to meet the needs of rice-processing businesses in Taiwan, for the first time the COA is recommending eight strains of rice that are intended for processing; farmers are free to choose among them.

(2) In order to concurrently upgrade the quality of rice purchased by the state, starting in 2014 it will only be permitted to sell to the state “premium rice strains” as announced by the government. Further, the COA also aims to discourage cultivation of ratoon rice (fallen grain cultivation), because this suffers from unstable production volume, is of inferior quality, and yields only limited substantive income to farmers; therefore, as of 2014, farmers can no longer apply to sell ratoon rice to the state. We will instead guide and assist farmers to (a) switch to other more suitable types of rice, (b) cultivate crops or plants of a scenic nature, or (c) plant “green fertilizer” crops to add nutrients to the soil. These will have the dual effect of ensuring farmers’ incomes while also supporting the environment and local ecology.

Strengthening management of rice sold in markets for human consumption

In August of 2013, it was discovered that a company was selling domestic rice labeled as imported rice, damaging the rights and interests of consumers and disrupting order in the market. The COA responded by strengthening management of rice sold in markets and by amending relevant laws and regulations. Steps included the following:

(1) On September 18, the COA announced amendments to the regulations governing determination of punishments for violations of the Food Administration Act (FAA). With respect to firms that produce rice for sale in the market to consumers: (a) Where there are violations of Article 14 Paragraph 1 of the FAA, considered minor violations, the response remains that the firm must rectify shortcomings within a fixed period of time and may be fined for each offense. (b) Where there are violations of Article 14 Paragraph 2 of the FAA, considered severe violations, firms will no longer be given a fixed period to rectify shortcomings, but will instead be immediately punished. When the total number of punishments under this provision has reached four, the registration of the firm as a food seller will be terminated, and their certification for registration as a food seller shall be suspended indefinitely until the firm re-qualifies for the certification.

(2) The COA has also completed the drafting process for amendments to some provisions of the Food Administration Act (FAA) itself. These were approved by the Executive Yuan at a cabinet meeting on December 26, and have been sent to the Legislative Yuan for deliberation. The main points of the amendments are as follows:

◆ Higher upper limit for fines: Taking into account the Act Governing Food Safety and Sanitation, the proposed amendments to the FAA will raise the maximum fine from the current NT$2 million to NT$4 million.

◆ Ban on mixing the sale of domestic and imported rice: For rice sold to consumers in markets, there will be a clear stipulation that domestic and imported rice shall be sold separately, and shall not be mixed together for sale.

◆ New provision allowing termination of registration as a food seller: For severe violations of the FAA, new provisions will be added that: (a) will allow the termination of the firm’s registration as a food seller; or (b) will allow indefinite suspension of that part of the firm’s registration which applies to selling food; or (c) will allow termination of all or some items of the firm’s food operations for a fixed period of time. The purpose of these proposed changes is to halt illegal behavior, maintain market trading order, and protect the rights and interests of consumers.

◆ Upgraded traceability of rice sold to consumers: The proposed amendments to the FAA will stipulate that food sellers must separately register their operations for buying, selling, import, or export of domestic rice as opposed to imported rice. Importers or processors whose operations reach a certain level shall maintain a record of the sources and routing of their food. In addition, for packaged rice sold in markets to consumers, in addition to the current requirement that the name of the “responsible firm” be printed on the label, a new provision will be added that the name of the “manufacturing firm” shall likewise be on the label, in order to make it easier to trace the sources and routing of imported rice.

◆ Extending the FAA to cover loose bagged rice: Currently, loose bagged rice is labeled in accordance with the requirements of the Act Governing Food Safety and Sanitation. The proposed amendments will bring this type of rice under the FAA, in order to ensure better protection of the rights and interests of consumers.

◆ Reform of the registration system for food firms: The new system would be paperless, requiring only that firms register, without requirement for approval and issuing of a registration certificate.

(3) In the past, sample testing was conducted each season on rice destined for sale in markets to consumers; as of January 2014, this will be changed to monthly sample testing.