FAO Meeting Report No. PL/1965/10/2 WHO/Food Add/28.65 EVALUATION OF THE HAZARDS TO CONSUMERS RESULTING FROM THE USE OF FUMIGANTS IN THE PROTECTION OF FOOD The content of this document is the result of the deliberations of the Joint Meeting of the FAO Committee on Pesticides in Agriculture and the WHO Expert Committee on Pesticide Residues, which met 15-22 March 19651 Food and Agriculture Organization of the United Nations World Health Organization 1965 1 Report of the second joint meeting of the FAO Committee on Pesticides in Agriculture and the WHO Expert Committee on Pesticide Residues, FAO Meeting Report No. PL/1965/10; WHO/Food Add./26.65. CONTENTS General considerations The concept of acceptable daily intake as applied to pesticides Fumigants Biological data presented in the monographs Note to the reader Monographs: Acrylonitrile Carbon disulfide Carbon tetrachloride Chloropicrin Ethylene dibromide Ethylene dichloride Ethylene oxide Hydrogen cyanide Methyl bromide Phosphide GENERAL CONSIDERATIONS At the present time, to feed the people of the world, recourse must be had to pesticides to protect the crops both during growth and during their subsequent storage and transport. While some of the chemicals used for this purpose will not contaminate the final crop, others, even when used in accordance with good agricultural or food storage practice, will leave residues which will be present in the food at the time of consumption. This meeting was concerned, as were the previous ones, with the protection of the consumer against the hazards that might result from the presence of these residues, and its aim was to give guidance to authorities responsible for the health, nutrition and welfare of people from this point of view. In carrying out this task, the participants were mainly guided by the principles governing consumer safety in relation to pesticide residues enunciated at the 1961 joint meeting of the WHO Expert Committee on Pesticide Residues and the FAO Panel of Experts on the Use of Pesticides in Agriculture.1 The following definitions of the terms used in work on pesticide residues are reproduced from that report. Residue: A pesticide chemical, its derivatives and adjuvants in or on plant or animal. Residues are expressed as parts per million (ppm) based on the fresh weight of the sample. Food factor: The average fraction of the total diet made up by the food or class of foods under discussion. Details of the diet of a country may be obtained from the FAO Food Balance Sheets or other similar data. Acceptable daily intake: The daily dosage of a chemical which, during an entire lifetime, appears to be without appreciable risk on the basis of all the facts known at the time. "Without appreciable risk" is taken to mean the practical certainty that injury will not result even after a lifetime of exposure. The acceptable daily intake is expressed in milligrams of the chemical, as it appears in the food, per kilogram of body-weight (mg/kg/day). Permissible level: The permissible concentration of a residue in or on a food when first offered for consumption, calculated from the acceptable daily intake, the food factor, and the average weight of the consumer. The permissible level is expressed in ppm of the fresh weight of the food. 1 FAO Plant Production and Protection Division Report No. PL/1961/11; Wld Hlth Org. techn. Rep. Ser., 1962, 240. Tolerance: The permitted concentration of a residue in or on a food, derived by taking into account both the range of residue actually remaining when the food is first offered for consumption (following good agricultural practice) and the permissible level. The tolerance is also expressed in ppm. It is never greater than the permissible level for the food in question and is usually smaller. The meeting was not concerned with tolerances and it wished to re-emphasize the fundamental difference between a tolerance and an acceptable daily intake. Only acceptable daily intakes are based entirely on toxicological evidence. A tolerance is then the smallest residue consistent with control of the pest, but to be toxicologically acceptable it must not exceed the permissible level. In the report on principles governing consumer safety in relation to pesticide residues,1 the method outlined for calculating a permissible level is most useful for a pesticide which is used on a single article or class of articles of the diet, if these form the only source of that substance for the consumer. In many cases, a pesticide is used on a number of different types of foodstuff and may also have non-agricultural uses, as in public health programmes. DDT is a good example of this type of pesticide. Account must be taken of such multiple uses of pesticides and in these cases it may be preferable to adopt an alternative method of calculation based on that advocated for food additives.2 The possible consumer hazards arising from the intake of a pesticide could then be assessed by adopting the following procedure: (1) Determine the residue in each type of food and drink liable to contain the pesticide in question. (2) Calculate the daily intake level of the pesticide that might occur if it had been used on all the foodstuffs for which it might be used, working on the basis of the average daily diet. (3) Knowing the average body-weight, calculate the daily intake of the pesticide, expressed as mg per kg per day. (4) Check this figure against the acceptable daily intake for that pesticide. 1 FAO Plant Production and Protection Division Report No. PL/1961/11; Wld Hlth Org. techn. Rep. Ser., 1962, 240. 2 See the Sixth Report of the Joint FAO/WHO Expert Committee on Food Additives, FAO Nutrition Meetings Report Series, 1962, 31; Wld Hlth Org. techn. Rep. Ser., 1962, 228. (5) If the figure does not exceed the acceptable daily intake, the proposed uses of the pesticide are acceptable. If the figure exceeds the acceptable daily intake, one or more of the proposed uses will have to be reconsidered with a view to reducing the residues resulting from such use (or uses) or abandoning one or more uses entirely. (6) When there is a margin between the figure and the acceptable daily intake, proposals for further uses of that pesticide on foodstuffs can be considered. THE CONCEPT OF ACCEPTABLE DAILY INTAKE AS APPLIED TO PESTICIDES Since pesticides are, from their very nature, poisonous to some forms of life, any intake by man in the food may be considered undesirable. For this reason the rate of application of the pesticide to the crop should be as low as possible, and the interval between its last application and the consumption of the crop should be as long as possible so that the residue is reduced to a minimum. Nevertheless, if pesticides are to be used, as they must be, some ingestion will occur. It would help in the assessment of any possible hazards arising from the consumption of these tiny amounts of pesticides if it were known how much could be consumed daily without risk. In order to determine an acceptable daily intake the following information should be available. (a) The chemical nature of the residue in food as presented for consumption. Pesticides may undergo chemical changes and are frequently metabolized by the tissues of the plants and animals that have been treated with them. Even when a single substance has been applied, the residue may consist of a number of substances with distinct properties, the exact nature of which may differ in animals and plants and in different crops and products. (b) The toxicities of the substances forming the residue, as judged by acute, short-term and long-term studies in animals. In addition, knowledge is required of the metabolism, mechanism of action, and the possible carcinogenicity of pesticide residues when consumed. (c) A sufficient knowledge of the effects of these residues on man. Information on this scale is not often available at the present time, but if it is, a daily level of intake having no observable effect on a sensitive species of animal can be determined. In some cases, this level has been determined for man himself. From this starting point an acceptable daily intake for man can be proposed by employing a suitable factor. When an acceptable human daily intake of a residue has been proposed, the nature of the food bearing the residue is probably immaterial. The amount of data available varies considerably for the different pesticides. Nevertheless, even when the information about a particular pesticide appears very complete and an acceptable intake is proposed, it must be realized that, however carefully the data are evaluated, the statement that x mg/kg body-weight can be eaten every day for a lifetime without appreciable risk remains an expression of opinion which carries no guarantee of "absolute" safety. Such a guarantee would be impossible.1 On the other hand, the desire to use the most sensitive criteria for the determination of the threshold effect levels, coupled with the natural conservatism of an international body, inevitably leads to great caution in the proposals for acceptable daily intakes. This should be taken into account when these values are used. At the meeting, a single set of acceptable daily intake figures was proposed. It was recognized, however, that exceptional situations might arise when the possibility of exceeding these figures would have to be considered, e.g., in the event of serious food shortage. The meeting was not in a position to offer guidance to cover all such circumstances; each case will have to be decided on its merits by the national authorities responsible, who should take expert advice on the risks to health from excess intake of pesticides and the medical consequences arising from the loss of the crop. There are obviously conditions in which it would be unrealistic to adhere to these levels. The only advice which can be given to those faced with making this type of decision is to consider the nature of the criterion used to determine the level. Obviously, when the criterion used is a minimal change in cholinesterase activity of the blood, the level can be more safely exceeded than when the criterion is some more serious functional change. Only a limited number of the many pesticides now available have been considered. The omission of a pesticide from the monographs does not imply criticism of that pesticide, nor does it suggest that it can be used without restraint. The meeting strongly emphasized that new data or new knowledge could always lead to a re-evaluation of an acceptable daily intake. Values of this nature are always provisional. It is the duty of all who use the material contained in the monographs to ensure that they possess the latest information. 1 Stoner, H. B. (1964) J. Food Cosmet. Toxicol., 2, 457. FUMIGANTS The meeting decided that a somewhat different approach was needed in considering fumigants. To make the report as complete and as useful as possible, it was decided to evaluate the possible consumer hazards arising from all the uses of fumigants on food but not those arising from other uses of these substances, e.g., as soil fumigants. Fumigants for food form a fairly well-defined group of substances which have remained unaltered in number and composition for many years. These substances have been developed as fumigants and have become accepted as suitable for that purpose for three reasons: (1) they are effective against the pest; (2) although many of them are highly toxic it has been possible to derive ways of using them safely; (3) it has been considered in the past that provided the operators adhered to good practice1 in regard to type of crop, dosage, method of application and subsequent treatment of the crop (aeration, milling, baking, etc.), use of these fumigants would not lead to a consumer hazard. The meeting did not concern itself with the possible hazards that these fumigants might offer to their users. Fumigants could give rise to a consumer hazard in several ways: (1) The fumigants might persist on the food chemically unchanged as a residue which would be consumed. (2) The fumigant might be broken down, wholly or in part, on the food to give a residue different in composition from the fumigant itself which would also persist and might finally be consumed. (3) The fumigant might interact chemically with the food to form a new substance which might also persist as a residue. (4) The fumigant might interact chemically with the food in such a way as to affect its nutritional value. If a fumigant when used according to good practice had none of these actions, it could not present a consumer hazard and its use would be acceptable. For the assessment of the dangers that might arise from a fumigant which did have one or nore of these actions, the concept of "acceptable daily intakes" might be useful in the cases when there was a residue of either the unchanged fumigant, its decomposition products, or the chemical substances it had formed with the food. Knowledge of the "acceptable daily intakes" of these substances would be useful in assessing consumer hazards that might arise from the use of the fumigant, particularly under conditions of abnormal pest infestation when the dose might have to be increased or the treatment repeated. 1 Monro, H. A. U. (1961) Manual of fumigation for insect control, FAO, Agric. Studies, 56, 294. Where the fumigant had a deleterious effect on the nutritive value of the foodstuff, one would have to know which nutrient in the food had been affected, what alternative sources of that nutrient were present in the diet, and the importance of the fumigated food as a source of that nutrient to the population at risk. The suitability of the fumigant would be judged on the answers to these questions and the decision might differ in different areas. Neither the user nor the consumer hazards of a fumigant can be assessed apart from its mode of use. This is particularly so in the case of the consumer hazard where any residue will be determined by the amount applied, the degree of subsequent aeration of the crop, and its processing (milling, baking, etc.) before consumption. The meeting took note of the fact that many formulations of fumigants comprise two or more components, but the information on residues and toxicology has been evaluated only for the individual substances. Furthermore, food may sometimes be fumigated more than once between harvest and ultimate consumption. Account should be taken of the total effect of these treatments on the food. The monographs for the individual fumigants have been extended to include sections on the use of the fumigants, the nature and size of the residues left by these uses and any effects the compound has on the treated crops. These sections show the criteria used to assess the fumigant. The toxicological sections of the monographs have also had to be expanded in some cases. Where a residue of the unaltered fumigant persists on the crop until the time of consumption, the toxicity of the fumigant itself must be considered. Where the residue is composed of decomposition products of the fumigant the toxicity of these compounds must also be described. Changes in the fumigated foodstuff have also been included. Many of the fumigants considered have been well known to toxicologists for many years and descriptions of their toxic effects are to be found in most standard works on toxicology.1 Only material appertaining to the evaluation of consumer hazards arising from the use of these substances as fumigants has been included in the monographs. 1 See, for example: Fabre, R. & Truhaut, R. (1960) Précis de toxicologie, Paris, Sedes, vol. 1; Patty, F. A. (1949) Industrial hygiene and toxicology New York, Interscience, vol. 2; Oettingen, W. F. von (1955) The halogenated aliphatic, olefinic, cyclic, aromatic and aliphatic-aromatic hydrocarbons including the halogenated insecticides, their toxicity and potential dangers, United States Department of Health, Education and Welfare; Browning, E. (1953) Toxicity of industrial organic solvents, London, HMSO, rev. ed.; Oettingen, W. F. von (1964) The halogenated hydrocarbons of industrial and toxicological importance, Elsevier. It was realized that for most fumigants little information was available on residues left in the various items of food treated; further, that the chemical reactions that might take place between the fumigants and components such as amino-acids or vitamins in the food have been insufficiently investigated. In addition, the meeting did not consider that the data presented on the biological effects of fumigated food on experimental animals reached the standards required in the three joint FAO/WHO reports1 dealing with the procedure for testing food additives. In most cases the data presented were insufficient for the estimation of acceptable daily intakes for man. This situation is very unsatisfactory and it is urgently recommended that governments initiate research to solve the problems connected with the fumigation of food. In view of this unsatisfactory situation the meeting urged that, for the safety of both user and consumer, all fumigants should be used in accordance with good practice as suggested in the FAO manual,2 paying particular attention to the choice of the food to be treated, subsequent aeration of the food, and the removal of any material used to generate the fumigant. These difficulties are reflected in the results of the attempts to evaluate the consumer hazards of the fumigants examined. An acceptable daily intake value for the residue or the unchanged fumigant was established in only one case, that of hydrogen cyanide. The acceptable daily intake for man of cyanide resulting from the fumigation of food was considered to be not more than 0.05 mg of HCN per kg body-weight per day. The residue of inorganic bromide from the use of ethylene dibromide was thought to be unlikely to make any significant contribution to the total bromide content of the diet. The use of methyl bromide can lead to higher residues of inorganic bromide. It was considered that the possible risk from these could be assessed, if need be, on the basis that the total daily intake of this ion from all sources should not exceed 10 mg of Br per kg body-weight per day. Carbon tetrachloride and ethylene dibromide were not considered to lead to a consumer hazard provided that none of the unchanged fumigant reached the consumer (the sensitivity of the present analytical method for carbon tetrachloride being 0.01 ppm and that for ethylene dibromide being 1 ppm). It was also thought that ethylene dichloride should be used as a fumigant under conditions that will result in the lowest possible residues in the food as consumed. 1 FAO Nutrition Meetings Report Series, 1958, 17; Wld Hlth Org. techn. Rep. Ser., 1958, 144. FAO Nutrition Meetings Report Series, 1961, 29; Wld Hlth Org. techn. Rep. Ser., 1961, 220. FAO Plant Production and Protection Division Report No. PL/1961/11; Wld Hlth Org. techn. Rep. Ser., 1962, 240. 2 Monro, H. A. U. (1961) Manual of fumigation for insect control, FAO, Agric. Studies, 56, 294. For methyl bromide, ethylene oxide, acrylonitrile and phosphine there was insufficient toxicological evidence available to evaluate the significance of any residues of the unchanged fumigants. Since phosphine is often generated in grain from aluminium phosphide it was considered that crops treated with this substance should be freed of residues of the powder before they reached the consumer. Acceptable daily intake values could not be determined for carbon disulfide or chloropicrin and a large amount of work will be necessary on the nature and amount of the residues and the interaction of the fumigants with the treated food, in addition to long-term toxicological studies if the use of these fumigants is to be continued. These remarks do not apply to the use of chloropicrin as a warning agent. What is known of the action of these fumigants on the nutritive value of the food is included in the monographs. In so far as this has been examined, the results, in most cases, have been reassuring, but much more work is necessary on this topic (see above). BIOLOGICAL DATA PRESENTED IN THE MONOGRAPHS In using the concept of acceptable daily intakes in the control of consumer hazard from pesticides it is not sufficient merely to consult a list of figures. Account must also be taken of the evidence on which the figures are based. As much relevant information as possible has been included in the monographs. Wherever possible this has been obtained from the published literature but other sources of information have also been used. The members of the meeting thanked all those who had made information available to them and offered their apologies to any authors whose work may not have been taken into consideration. They emphasized the need for the early and complete publication of the results of research in this field, particularly of that part which could form the basis of the determination of an acceptable daily intake for man. This is necessary so that the work reported can be the subject of scrutiny and informed criticism by a wider group of scientists covering disciplines not necessarily represented at the Committee meeting. Unpublished data, because they may include more detail than published work, may often be required for the determination of acceptable daily intakes. These data must be complete non-confidential and with an indication of the authorship of the report. The information will not be considered unless it is received by FAO/WHO at least six months before the announced date of the Committee meeting in sufficient copies (at least two) to be distributed to suitable experts. For many substances the amount of information fell short of that required for the setting of an acceptable daily intake for man but not all the substances for which no figure was proposed seem to offer the same hazard. An attempt has been made to indicate the degree of hazard in each case and an indication has also been given of further work needed. When the additional information is forthcoming, the substances in this category will be reconsidered. The figures already set will be reviewed in the light of further knowledge. The biological data are presented under various headings, as in previous reports of this type. Biochemical studies These are important because they reveal the metabolism of the pesticide in the crop during the formation of the residue and subsequently in the animal which consumes it. It is important to know whether a substance is absorbed, its distribution in the body after absorption, its mechanism of action including its influence on enzyme systems, how it is metabolized, and the routes of final elimination, The toxicity of a pesticide may be altered at all these stages. In the crop or - in the case of veterinary pesticides - in the animal, a number of metabolites may be produced, some of which may be the active forms of the pesticides, as in the formation of paraoxon from parathion. After ingestion, these active products may be further broken down to compounds that are excreted. Storage of these or of the parent chemical may occur. The fact that a substance appears to be rapidly broken down and excreted does not necessarily mean that it is more desirable as a residue than one which is stored, say, in the adipose tissue. Short-lived compounds formed during the breakdown might be very poisonous, whereas persistent compounds might be stored in an inactive form. Broadly speaking, the more that is known of the fate and mechanism of action of a pesticide the better should be the understanding of its toxicity and consequently the easier it will be to set an acceptable daily intake for man. Acute toxicity The value of data on acute toxicity is that they give an idea of the inherent toxicity of the material. Where there is information of the acute sensitivity of man to pesticides it has been included under this heading. Short-term studies Investigations covering less than half the animal's life-span are included under this heading. In the case of some of the pesticides considered, studies have been made in which they have been fed to man. These data are clearly of great value and have also been taken into consideration. In a few instances studies on workers exposed to pesticides have contributed some information or help in arriving at figures for acceptable daily intakes. It is desirable that further careful studies on workers be made because of their prolonged intensive exposure. Long-term studies These studies include tests covering the greater part of the animal's lifespan and research on the possible carcinogenicity of the residues. The requirements of the latter tests have been discussed in previous reports.1,2,3 Long-term studies are important for the determination of the dietary level of the compound which produces no effect, particularly when dealing with compounds that do not produce any measurable biochemical changes. Obviously such tests must be carried out on a species that has been shown by acute and/or short-term studies to be sensitive to the compound. The sensitivity should be as similar as possible to that of man and the metabolism of the compound in the animal should also be similar to that in man. Special studies The Committee again considered the significance of the inhibition of the liver esterases by many organo-phosphorus pesticides at concentrations below those required for the inhibition of cholinesterase. Again, the Committee did not think that it was possible to utilize these effects in the assessment of consumer hazard since the functional importance of these enzymes are not known, no symptoms appear to be attributable to their inhibition and the symptoms of poisoning by organophosphorus pesticides can be related to their effect on cholinesterase activity. At the end of the introduction to the last report, the Committee mentioned those additional factors which should be borne in mind when using the acceptable daily intake figures, namely, addition (summation), potentiation and the possibility of genetic differences in the populations at risk. The Committee did not consider that it could amplify its previous remarks on "addition" or "genetic differences". Those remarks are now repeated. 1 Wld Hlth Org. techn. Rep. Ser., 1958, 144; FAO Nutrition Meetings Report Series, 1958, 17. 2 Wld Hlth Org. techn. Rep. Ser., 1961, 220;FAO Nutrition Meetings Report Series, 1961, 29. 3 Wld Hlth Org. techn. Rep. Ser., 1962, 240;FAO Plant Production and Protection Division Report No. PL/1961/11 (a) Addition. The values given in the monographs have been calculated on the assumption that the diet is contaminated by a single chemical residue. In practice, foodstuffs frequently contain residues of more than one compound, and an additive effect may then occur. The meeting did not feel able to make any specific recommendations under this heading, but emphasized as a general safeguard against these additive effects the importance of always keeping the residues to a minimum. (b) Genetic differences. The increasing appreciation that genetically determined differences in the enzymic pattern of man can affect his reaction to toxic agents is a further indication that acceptable daily intakes should not be applied too rigidly. Regarding the possibility of the potentiation of the effect of one pesticide residue by the residue of another pesticide, the Committee considered that the evidence which was available indicated that potentiation was unlikely to occur at the concentrations for pesticide residues found in food. Since the last report more information1,2,3,4,5 has come to hand on the results of the use of behavioural tests in the investigation of the toxicity of pesticides. These tests offer additional ways of investigating the actions of pesticides on mammals and the results have been taken into account in the evaluation of the toxicity of the pesticides considered in these monographs. At the present time it would appear that for some substances behavioural tests are not more sensitive than other tests (biochemical, etc.) used to detect toxicity and the information obtained must be considered together with all the other available information. 1 Medved, L. I., Spyn, E. I. & Kagan, I. S. (1964) Residue Reviews, 6, 42. 2 Goldberg, M. E. & Johnson, H. E. (1964) J. Pharm. (Lond.), 16, 60. 3 Goldberg, M. E. & Johnson, H. E. (1964) J. Pharmacol. exp. Ther., 145, 367. 4 Goldberg, M. E., Johnson, H. E. & Knaak, J. B., Psychopharma (In press). 5 Goldberg, M. E., Johnson, H. E. & Knaak, J. B., Biochem. Pharmacol. (In press). Comments on experimental studies reported Under this heading is given a short commentary summarizing the available evidence and leading to its evaluation from the point of view of the determination of a maximum acceptable daily intake for man. Evaluation In evaluating the toxicological information, the meeting was mainly concerned to establish the maximum dose of the compound that could be given over a long period without producing ill effects. In most cases this was a dose level for some animal species. For some compounds this level had been determined in man, and such human data, although often covering a relatively short period, naturally took precedence. When human data of this type were not available and in the absence of evidence to the contrary, human sensitivity in principle was equated with that of the most sensitive animal species. It is unfortunate that only crude criteria exist for estimating the mammalian toxicity of many pesticides. It was felt that a cautious attitude should be adopted towards compounds whose mechanism of action was unknown. The meeting wished to draw the attention of research workers to the need for more sensitive criteria for use in this type of work. Increasing sensitivity is not valuable of itself unless it is significant from the point of view of toxicity. The sensitivity of those tests used to measure the toxicity of the pesticide at high dosage levels should be increased so that proper dose-response curves can be determined. Extrapolation to man Where a maximum no-effect level of dietary intake has been established in a sensitive animal species and where there are no comparable data for man, the animal dose rate must be taken as a basis for calculating an acceptable daily intake for man. This can be done in several ways.1,2 Unfortunately the more scientific methods of making this adjustment require an amount of information that is seldom available and was certainly lacking for the compounds studied in the present report. Accordingly the meeting adopted the commonly used empirical method: the maximum no-effect dietary level obtained by animal experiment, expressed in mg/kg bodyweight per day, was divided by a "factor", generally 100. 1 Gaddum, J. H. (1956) Brit. J. Pharmacol., 11, 156. 2 Mantel, N. & Bryan, W. R. (1961) J. nat. Cancer Inst., 27, 455 Where the maximum no-effect level for oral intake in man was known, a smaller factor was used - in certain cases as low as 10. The acceptable daily intake figures in the monographs that follow are intended to be of value as a check to ensure that tolerances are toxicologically acceptable. Note to the the reader Any comments on chemical and physical information and agricultural data should be addressed to: Crop Protection Branch Plant Production and Protection Division Food and Agriculture Organization Rome, Italy Any comments on biological data and their evaluation should be addressed to; Nutrition Unit World Health Organization Geneva, Switzerland
See Also: Toxicological Abbreviations