Dear Simon,
I think EHO's are proactive at heart but do not have the resources to be fully proactive in practice, it would be almost impossible to police the zillions of food establishments effectively. It's the same with Health & Safety Executive, they only come knocking following an accident. Maybe a third party certification scheme is in order
I think you may be being too generous. I have occasionally seen actual (probably) reports of EHO inspections publishd on the net. It appears that the tolerances are considerable compared to inspection of large scale manufacturing plants (the scale-up factor?). Similar kind of compromise as had to be made regarding the SFBB project, I imagine.
To put it another way, the (known-in-the-trade?) tolerances may be why yr butcher is still following his suspect procedures (IHEX ??). I find it hard to believe he has no idea of the possible consequences.
As per another thread, back to "implementation". Gotta blame somebody.

One suggestion - you might casually drop in to yr local EHO office (exists?) and enquire if there are any statistics on incidents due to "XXXX" in butcher's establishments ? Just another act of good citizenship at work.

Rgds / Charles.C