THE 2017-2018 LISTERIOSIS OUTBREAK, SOUTH AFRICA JOINT SITTING OF THE PORTFOLIO COMMITTEE’S FOR AGRICULTURE, FORESTRY AND FISHERIES; HEALTH; AND TRADE AND INDUSTRY 28 MARCH 2018

OUTLINE OF THE PRESENTATION Acronyms Roles and responsibilities in food safety South African Food Control System Overview of meat safety controls in South Africa DAFF legislative mandate Alignment of DAFF legislation to other regulatory authorities’ mandate Collaboration on food control in Provinces Importation of meat and meat products into South Africa Listeriosis outbreak background Response to the current outbreak Previous Microbiological Analysis of Meat and Meat products Concerns and trade implications Conclusion

ACRONYMS ARC - Agricultural Research Council (ARC) cfu Colony forming units CODEX - Codex Alimentarius, or "Food Code" is a collection of standards, guidelines and codes of practice adopted by the Codex Alimentarius Commission. DAFF - Department of Agriculture, Forestry and Fisheries DOH - Department of Health DTI - Department of Trade and Industry HACCP - Hazard Analysis Critical Control Point INFOSAN - International Network of Food Safety Authorities MNORT - Multi-Sectoral National Outbreak Response Team LM - Listeria monocytogenes MDM - Mechanically deboned meat NHLS - National Health Laboratory Services NCC - National Consumer Commission NICD - National Institute for Communicable Diseases

ACRONYMS (continuation) NRCS - National Regulator for Compulsory Specifications OVR - Onderstepoort Veterinary Research PHECC - Public Health Emergency Coordinating Committee QA - Quality Assurance RASFF - Rapid Alert System for Food and Feed RTR - Ready to eat SANAS - South African National Accreditation System SAPS - South African Policy Service SPS - Sanitary and Phytosanitary TBT - Technical Barriers to Trade SANS - South African National Standard

ROLES AND RESPONSIBILITIES IN FOOD SAFETY

SOUTH AFRICAN FOOD CONTROL SYSTEM National Provinces Assignees SOUTH AFRICAN FOOD CONTROL SYSTEM National MUNICIPALITIES DAFF QA & Export of Regulated agricultural products Registration of pesticides & stock remedies Meat Safety, Import & Export of fresh meat SPS Contact Point dti NRCS Canned and frozen fish/products Fresh seafood Canned meat products (>10%) Imports & Certification of exports SABS TBT Enquiry Point VOLUNTARY Standards SANAS NCC DoH Import, Manufacture, Sale & Export (“Processed Products”) “Food Safety Regs” Nutritional Labelling CODEX Contact Point INFOSAN Emergency Contact Point RASFF Contact Point In countries where authorities dealing with food safety are located in several agencies, several focal points have been identified. In this context, food safety authorities are broadly defined and include authorities involved in - food legislation, - risk assessment, - food control and management, - food inspection services, laboratory services for monitoring and surveillance, - food safety information, - trade officials, veterinary services - and education and communication, across the entire farm-to-table continuum. Currently, INFOSAN Focal Points are located in several ministries, including ministries of health, food, agriculture and trade. When there is more than one focal point in a country, the coordination between the focal points must take place at the country level to ensure that the roles are undertaken effectively. Consumer Protection Act, 2008 ---NCC Monitor the Consumer Market, investigate alleged prohibited conduct and offences and enforce compliance notices

OVERVIEW OF MEAT SAFETY CONTROLS IN SOUTH AFRICA Regulatory Authority Legislation Abattoir Live animals/Poultry Processors Butcheries Shops Restaurants Animal Diseases Act Act 36 of 1947 Agriculture (Exports) Department of Health and Municipalities Stock Theft Act National Environmental Management Act Meat Safety Act Foodstuffs, Cosmetics & Disinfectants Act Production Area Animal Protection Act Animal Identification Act

DAFF LEGISLATIVE MANDATE Animal Diseases Act, 1984, (Act No. 35 of 1984) Provide for control of animal diseases and parasites, for measures to control animal health and for matters connected therewith (permit required for import of meat/meat products) Meat Safety Act, 2000 (Act No 40 of 2000) Provide for measures to promote meat safety and the safety of animal products; to establish and maintain essential national standards in respect of abattoirs; to regulate the importation and exportation of meat; to establish meat safety schemes; (abattoirs and import/export of fresh/chilled/frozen meat) Agricultural Product Standards Act (APS), 1990 (Act No. 119 of 1990) Provide for control over the sale and export of certain agricultural products, control over the sale of certain imported products. (quality/TBT & food safety standards for local/exports of food of plant origin) Fertilizers, Farm Feeds, Agricultural Remedies and Stock Remedies Act, 1947 (Act No 36 of 1947) Regulate the importation, sale, acquisition, disposal or use of fertilizers, farm feeds, agricultural remedies and stock remedies; to provide for the designation of technical advisers and analysts; and to provide for matters incidental thereto.

Meat Safety Act, 2000 (Act No. 40 of 2000) Purpose: To provide for measures to promote meat safety and the safety of animal products. to establish and maintain essential national standards in respect of abattoirs. to regulate the importation and exportation of meat. to establish meat safety schemes. to provide for matters connected therewith. establish an Specific deliverables: Regulation of slaughtering of animals Registration and monitoring of abattoirs. Combatting illegal slaughtering of animals. Chemical residues monitoring in food of animal origin. Microbiological monitoring of meat (imported and locally produced). Export and export facilitation of food of animal origin.

Agricultural Product Standards, 1990 (Act No. 119 of 1990) Purpose: To provide for control over the sale and export of certain agricultural products, control over the sale of certain imported products. (quality & food safety standards for local/exports of food of plant origin). Specific deliverables: Registration of Food Business Operators of agricultural products of plant origin. Manage the level of risks associated with food, diseases, pests, natural disasters and trade. Export Standards and Requirements – microbiological (and mycotoxin) and chemical residue (lab tests) including physical tests. Local Regulations – contaminants such as additives and other foreign matter. R707 (Food hygiene and food safety standards) – audit system of Food Business Operators and traceability system of exported regulated agricultural products.

Liquor Products Act Purpose: To provide for control over the sale and production for sale of certain alcoholic products, the composition and properties of such products and the use of certain particulars in connection with the sale of such products; for the establishment of schemes; for control over the import and export of certain alcoholic products; and for matters connected therewith. Specific deliverables Wine of Origin Scheme. Composition regulations of liquor products – list of prohibited substances. Test for contaminant.

Other supporting Acts Animal Diseases Act, 1984 (Act No. 34 of 1984) Purpose: To provide for control of animal diseases and parasites. To provide for measures to control animal health and for matters connected therewith. Fertilizers, Farm Feeds, Agricultural Remedies and Stock Remedies Act, 1947 (Act No 36 of 1947) Regulate the importation, sale, acquisition, disposal or use of fertilizers, farm feeds, agricultural remedies and stock remedies; to provide for the designation of technical advisers and analysts; and to provide for matters incidental thereto.

ALIGNMENT OF DAFF REGULATORY FRAMEWORK WITH OTHER DEPARTMENTS Agriculture legislation dealing with food is aligned to: Regulations published by DoH under Foodstuff, Cosmetics and Disinfectants Act: Regulation on food additives Regulations on contaminants such as mycotoxin Regulations on food hygiene Hazard Analysis Critical Control Point (HACCP) Maximum Residue Limits in Food Labelling regulations National Regulator for Compulsory Specifications Act 5 of 2008 of the Department of Trade and Industry. Multilateral standards on food safety and quality assurance.

COLLABORATION ON FOOD CONTROL IN PROVINCES There are Food Control Committees in every Province consisting of: Provincial Department of Agriculture (Veterinary Public Health) Provincial Department of Health Municipal Health Services SAPS (Stock Theft Unit) Activities of the Food Control Committees include: Joint inspections of food premises Combatting illegal slaughtering Road blocks to search food delivery vehicles for compliance

Procedure for importation of animals and products of animal origin Current permit available on system 15 Application received No current import permit available Likelihood of importing disease   Risk assessment Assess disease status of export country Disease status acceptable Disease status not acceptable Risk acceptable Consequence of importing disease Draft import requirements Assess Vet Services of export country Vet Services not known Risk too high Vet Services known and trusted Permit issued Evaluate Vet Services: questionnaire or inspection visit Vet Services accepted Vet Services not accepted Export country can’t comply with requirements Export country can comply with requirements Successful import Agreement reached Negotiate on requirements Import not allowed Agreement not reached

Veterinary Procedures at Ports of Entry Arrival of product at Port of Entry Handed to Veterinary Authority Visual Inspection Testing Compliance Non Compliance Lethal treatment Reject consignment Release into market Return to Country of origin Disposal

LISTERIOSIS OUTBREAK BACKGROUND As of the 20th March 2018, the total number of laboratory confirmed cases stands at 995 since the beginning of 2017. The total of cases with known outcomes is 685/995 (69%) patients with 186/685 (27%) patients known to have died. Most cases have been reported from Gauteng Province (59%, 591/995) followed by Western Cape (12%, 119/995) and KwaZulu-Natal (7%, 72/995) provinces. Cases have been diagnosed in both public (65%) and private (35%) healthcare sectors.

MULTI STAKEHOLDER INVOLVEMENT IN THE CURRENT LISTERIOSIS OUTBREAK RESPONSE DAFF participates on the: Public Health Emergency Coordinating Committee (PHECC) led by the DOH. The committee meets weekly. Multi-Sectoral National Outbreak Response Team (MNORT). The team meets monthly. The Gauteng Provincial Outbreak Response Team is active and DAFF and DOH are engaging other Provinces to form teams as well.

RESPONSE TO THE CURRENT LISTERIOSIS OUTBREAK Following an incidence of kids at a creche in Soweto falling ill from consuming bread with polony (Enterprise and Rainbow) and margarine: Enterprise Foods in Polokwane (Limpopo) was visited by a joint team of DAFF, DOH, Polokwane Municipality and NICD on the 2nd February 2018 and samples were collected. Rainbow (RCL) Factory was visited on the 14th of February and samples were collected. Samples were sent to a SANAS accredited private laboratories and National Health Laboratory Services (NHLS) laboratory. Samples from Enterprise Foods (Polokwane) tested positive for L. monocytogenes ST6. Ninety one percent (91%) of the cases have been linked to the ST6 type. RCL samples tested positive for L. monocytogenes. Sequencing results to determine the type still outstanding.

RESPONSE TO THE CURRENT LISTERIOSIS OUTBREAK (continuation) Both Enterprise Foods and RCL establishments are registered by DAFF (ZA registration) for export purposes of the processed products and Department of Health for the handling of food in the country. DAFF immediately suspended exports certification of products from the establishments. Trade partners were notified of the outbreak and the steps DAFF and South Africa have taken to ensure that the affected products do not enter their markets. Imported Mechanically deboned meat (MDM) which is used in the manufacture of processed meats, is being sampled at the ports of entry for Listeria. Results of sequencing for LM positive samples still pending.

RESPONSE TO THE CURRENT LISTERIOSIS OUTBREAK (continuation) As there is no limit set locally and internationally for LM in raw meat (including MDM), MDM which has tested positive has been released for heat treatment which destroys the organisms at processing plants and DOH has been informed of the destinations of such products. Processing plants where positive MDM has been sent have been visited for inspections by the interdepartmental teams. Rainbow Abattoir in KwaZulu-Natal which supply MDM to the processing plant in Free State Province was visited on the 7th of March 2018 and 100 environmental swabs were collected from the abattoir, deboning and MDM processing areas. Preliminary results indicate that 10 of the 100 environmental swabs were positive for Listeria monocytogenes and sequencing is in progress.

RESPONSE TO THE CURRENT LISTERIOSIS OUTBREAK (continuation) Provincial Veterinary Authorities have increased surveillance and sampling at abattoirs. Positive L. monocytogenes samples at abattoirs result in the abattoir receiving an instruction to conduct deep cleaning and retesting. Repeated positive results may result in the suspension of the abattoir. As DAFF is affected by the outbreak due to its impact on the farming sector (raw material used in processed meat production) and exports of these products by agriculture, the Minister of Agriculture, Forestry and Fisheries visited Enterprise Foods in Polokwane on the 19th March 2018. The purpose of the visit was for the Minister to be appraised of the processes implemented by the management of the establishment to deal with the outbreak. Media statements and engagements with South Africa’s international missions to clarify and update trade partners have been implemented.

PREVIOUS MICROBIOLOGICAL ANALYSIS OF MEAT AND MEAT PRODUCTS Prior to the current outbreak, DAFF in collaboration with Agricultural Research Council (ARC OVR) (2014 – 2016) had confirmed that animal products were contaminated with foodborne pathogen. The greater concern to the outcome of the project was on the presence of foodborne pathogens including Listeria monocytogenes in raw and ready to eat products (RTE). The analysis identified that the most contamination occurred at processing plants. There is no set limit for Listeria monocytogenes in raw meat as the expectation is that the meat will be cooked prior to eating, which destroys the Listeria organism. Limits in ready to eat (RTE) is 100cfu/g (Codex).

CONCERNS AND TRADE IMPLICATIONS There are probabilities that the LM ST6 type could have originated from outside the country via meat trade and adapt within processing facilities’ environment in South Africa. The current port of entry controls are compromised by lack of operational funds, resources and adequate infrastructure. Industry has been benchmarking its requirements based on a voluntary South African National Standard (SANS) 885 for processed meats which stipulates a minimum of 100 cfu/g in RTE processed meat products. Trading partners are taking precautionary (too strict) principle and suspending imports of South Africa products that are not implicated in the outbreak.

CONCLUSION The responsibility for food safety involves the food business operatory, government and the consumer and all these partners must play their roles. Strong partnerships need to be formed between the private sector, statutory organisations, universities, farmer organisations, international organisations and to a large extend the public. Sufficient resources must be made available for the officials to trace back the potential source targets for the ST6. Trace back investigations in order to find the possible source of the outbreak of Listeria monocytogenes are too costly while no resources have been allocated to the outbreak investigations and tracing back activities.