Risk Management Proposal:  
Recognition of country freedom from citrus canker  for 
fresh lime ( Citrus aurantiifolia ), lemon ( Citrus limon ), 
grapefruit ( Citrus paradisi ), mandarin/tangerine 
(Citrus reticulata ), orange (Citrus sinensis ) for 
Australia.  
 
 
 
 
 
 
 
 
 
 
 
 
Prepared for  public consultation   
by Horticulture Imports Team  
Animal and Plant Health Directorate  
 
 
 
 
 
 
 
 
October  2021 
 
 
Disclaimer  
 
While every effort has been made to ensure the information in this publication is accurate, 
the Ministry  for Primary Industries does not accept any responsibility or liability for error of fact, 
omission, interpretation or opinion that may be present, nor for the consequences of any decisions 
based on this information.  
 
This publication is also available on the Ministry for Primary Industries  website at  
http://www.mpi.govt.nz/news -and-resources/publications/   
 
 
© Crown Copyright – Ministry  for Primary Industries   
i Contents  Page 
 
Submissions  1 
1 General information  3 
1.1 Purpose  3 
1.2 Background  3 
1.3 Timing  and Consultation  3 
1.4 Background  and Context to Consultation  3 
2 Biosecurity  risk associated with fresh citrus fruit from Australia  4 
3 Proposed  changes to the Stan dard 4 
3.1 Rationale  For Proposed changes to the requirements for Fresh Citrus from Australia  4 
4 Rationale  for the proposed change to the Standard  5 
4.1 Introduction  5 
4.2 response  to outbreak  5 
4.3 Country freedom  maintenance  6 
4.4 Country freedom  declaration  6 
5 Feasibility  of the proposed change to the Standard  6 
6 References  7  
Ministry for Primary Industries   • 1 Submissions  
The Ministry for Primary Industries (MPI) invites comment from interested parties on the 
proposed amend ment to the Ministry for Primary Industries Standard 152.02: Importation and 
clearance of fresh fruit and vegetable s into New Zealand  (the Standard)  and the Import 
Health Standards  for fresh lime ( Citrus aurantiifolia ), lemon ( Citrus limon ), grapefruit ( Citrus 
paradisi ), mandarin/tangerine ( Citrus reticulata ) and orange ( Citrus sin ensis ) from Australia 
which is supported by this Risk Management Proposal.  
 
An import health standard (IHS) “specifies requirements to be met for the effective 
management of risks associated with arrival of craft or risk goods” (section 22 , Biosecurity  
Act 1993).  
 
In 2018, Australia detected Xanthomonas citri pv. citri in the states of Western Australia and 
Northern Territory. On 30  April 2021  Australia declared country freedom for X. citri pv. citri 
and MPI is seeking comment on the followin g changes to the Standard  for fresh citrus 
exports from Australia : 
1. Removal of the requirement for fresh citrus to be (iii) been sourced from an area free 
(verified by an official detection survey) from  Xanthomonas citri subsp . citri  
2. Removal of the additional declaration (iii) been sourced from an area free (verified by 
an official detection survey) from Xanthomonas citri  subsp. citri and 
3. Removal of the Targeted Mea sure pest Xanthomonas citri subsp. citri (citrus canker)  
from the pest list for Australia for citrus species.  
MPI encourages respondents to forward comments electronically. Please include the 
following in your submission:  
• The title of the consultation document in the subject line of your email;  
• Your name and title (if a pplicable);  
• Your organisation’s name (if applicable); and  
• Your address.  
Send submissions to plantimports@mpi.govt.nz  
 
However, should you wish to forward submissions in writing (hard copy), please send them 
to the following address to arrive by close of business on 19th October 2021 :  
 
Horticulture Imports Team  
Animal and Plant Health  Directorate  
Biosecurity New Zealand  
Ministry for Primary Industries  
PO Box 2526  
Wellington 6140  
New Zealand  
 
Submissions received by the closure date will be considered during the development of the 
final IHS. Submissions received after the closure date may be held on file for considerat ion 
when the issued  IHS is next revised/reviewed.  
 
 
Official Information Act 1982  
Please note that your submission is public information , and it is MPI policy to publish 
submissions and the review of submissions on the MPI website. Submissions may also b e 
the subject of requests for information under the Official Information Act 1982 (OIA).  
 2 • Ministry for Primary Industries  The OIA specifies that information is to be made available to requesters unless there are 
sufficient grounds for withholding it, as set out in the OIA. Submitters on the Risk 
Management Proposal for recognition of country freedom from citrus canker in Australia may 
wish to indicate grounds for withholding specific information contained in their submission, 
such as information that is  commercially sensitive or personal .  
 
Any decision to withhold information requested under the OIA is reviewable by the 
Ombudsman . 
   
Ministry for Primary Industries   • 3 1 General information  
 
1.1 PURPOSE  
The purpose of this document is to:  
• Provide relevant  information on Australia’s  request to recognise  country freedom for 
Xanthomonas citri pv. citri (citrus canker)  on fresh citrus fruit ; 
• Outline  the proposed amendment to the import requirements for fresh citrus fruit from 
Australia ;  
• Provide the rationale for the proposed amendment; and to  
• Seek feedback on the proposed amendment to importing requirements  for fresh citrus 
fruit exported from Australia to New Zealand.  
1.2 BACKGROUND   
Xanthomonas citri pv. citri (citrus canker ) symptoms were first detected in the Northern 
Territory of Australia (Darwin and Katherine ) on 2 April 2018 and was subsequently also 
identified in Western Australia ( Wyndham and Kununurra ) on 19 April 2018.  
 
Citrus canker is a regulated pest on the Official New Zealand Pest Register (ONZPR) and is 
not considered present in New Zealand.  
 
Fresh citrus fruit for export is mainly grown in Queensland, South Australia, Victoria and New 
South Wales . MPI urgently amended the import health standards for all citrus species 
exported to New Zealand to include  the additional declaration that  fresh citrus fruit  has ‘been 
sourced from an area free (verified be an official detection survey) from Xanthomonas citri  
subsp. citri.’ 
 
The Australian Department of Agriculture, Water and the Environment ( DAWE ) advised MPI  
on 7 May 2021  that Australia su ccessfully eradicated citrus canker from Western Australia 
and the Northern Territory , and requested New Zealand recognise country freedom . 
1.3 TIMING  AND CONSULTATION  
The proposed amendments to the fresh citrus fruit import health standards  was released for 
consultation on  5th October 2021 and will remain open for consultation until  19th October 2021  
(10 days only) . 
 
1.4 BACKGROUND  AND CONTEXT TO CONSULTATION  
1.4.1 International regulation of risk goods  
The World Trade Organisation Agreement on the Application of  Sanitary and Phytosanitary 
Measures (the SPS Agreement)  sets in place rules that protect each country’s sovereign 
right to take the measures necessary to protect the life or health of its people,  animals, and 
plants , while at the same time facilitating trade. It embodies and promotes the use of 
science -based risk assessments to manage the risks associated with the international 
movement of goods.  
The SPS Agreement guide s how New Zealand sets stan dards and makes decisions related 
to biosecurity. In particular , it is important to maintain the standards of transparency and 4 • Ministry for Primary Industries  scientific rigour required by the SPS Agreement and to make decisions as quickly as 
possible. This will encourage other countries  to comply with the rules of the SPS Agreement 
and also demonstrate that New Zealand’s strict controls are justified to countries that 
challenge them. (Balance in Trade [ISBN 978 -0-478-33881 -2]) 
1.4.2 Domestic regulation of biosecurity risks associated with craft arrivals or 
import health standards  
The N ew Zealand  biosecurity system is regulated through the Biosecurity Act 1993 (the Act). 
Section 22 of the Act describes a craft risk management standard or import health standard 
and requires all risk goods imported into New Zealand  to be managed by one.  
 
MPI is the N ew Zealand  government ministry responsible for maintaining biosecurity 
standards for the effective management of risks associated with the i mportation of craft and 
risk goods into N ew Zealand  (Part 3, Biosecurity Act 1993).  
 
MPI is committed to the principles of transparency and evidence -based technical justification 
for all phytosanitary measures, new and amended, imposed on importing pathwa ys. MPI 
periodically reviews all import health  standards, related documents and other standards so 
that the legal requirements are clear and information is consistently presented and as easy 
as possible to understand.  
 
The draft amendment to the IHS is the subject of consultation under Section 23(3) (b) of the 
Biosecurity Act 1993.    
2 Biosecurity  risk associated with fresh citrus fruit from 
Australia  
 
Xanthomonas citri pv. citri causes citrus canker, which is a disease of citrus that has 
economic and social impacts worldwide. The bacterium causes lesions  on leaves, stems and 
fruit of citrus species and can cause lea f drop, premature fruit drop, blemished fruit  and kill 
citrus plan ts (CABI, 2021) . 
 
Citrus canker can be found in Africa, Asia, Europe, North and South America and parts of 
Oceania and mainly affects  horticultural and ornamental species  of the Rutaceae family 
(CABI, 2021) .  
 
Xanthomonas  citri pv. citri is not known to be present in New Zealand ( NZOR , 2021) and is a 
regulated organism in New Zealand (ONZPR , 2021) . 
3 Proposed  changes to the Standard  
 
3.1 RATIONALE  FOR PROPOSED CHANGES TO THE REQUIREMENTS FOR 
FRESH CITRUS FROM AUSTRALIA  
 
Australia has market access f or the following fresh citrus fruit  
a. Citrus aurantiifolia (lime)  
b. Citrus limon (lemon)  
c. Citrus paradisi (grapefruit)  
d. Citrus reticulata (mandarin/tangerine)   
Ministry for Primary Industries   • 5 e. Citrus sinensis (orange ) 
 
Current options to manage the risk of citrus canker are that the fruit is sourc ed from a n area 
free from Xanthomonas citri  subsp. citri. Australia have requested New Zealand recognise 
country freedom . 
 
MPI recognise s the request for country freedom and proposes  removing  the additional 
declaration  from each fresh citrus fruit import health standard  from Australia :  
(iii) been sourced from an area free (verified by an official detection survey) from 
Xanthomonas citri  subsp. citri. 
4 Rationale  for the proposed change to the Standard  
4.1 INTRODUCTION  
Xanthomonas citri pv. citri (citrus canker ) symptoms were first detected in the Northern 
Territory of Australia (Darwin and Katherine ) on 2 April 2018 and subsequently also identified 
in Western Australia ( Wyndham and Kununurra ) on 19 April 2018.  
 
Until April 2018, Australia had had country freedom from citrus canker apart from outbreaks  
in the Northern Territory in 1991 and 1993 and in Queensland in 2004. Australia successfully 
eradicated citrus canker following each outbreak.  
 
Australia have requested MPI recognise country freedom following eradication of the 2018 
outbreak of citrus canker.  
 
MPI has assessed the information provided by DAWE and propose the recognition of country 
freedom from citrus canker in accordance with ISP M 4. Requirements for the establishment 
of pest free area , ISPM 6. Surveillance  and ISPM 8. Determination of pest status in an area.    
 
4.2 RESPONSE  TO OUTBREAK  
A national response was initiated under the Emergency Plant Pest Response Deed  to the 
detection of citrus canker in Western Australia and the Northern Territory . The National 
Response Plan was enacted and was supported by a communication and engagement 
strategy which provided information to build biosecurity awareness and encourage 
community and industry surveillance and reporting.  
The National Response Plan  involved plant removal and regrowth surveillance in restricted 
areas, surveillance in remote communities and areas of interest, tracing activities, movement 
control , and industry  and community engagement.  
a) Specific surveys were carried to determine where  the outbreak occurred.  
i. The source of the outbreak was traced to  imported stock in  one ornamental  
nursery .  
ii. Delimiting surveys were carried out around the infected properties . 
iii. Surveillance was undertaken of all properties which received plant material from 
the source of the outbreak . No natural spread was detected . The outbreak was 
limited to non -commercial residences in Western Australia and Northern Territory  
from where around 6000 host plants were removed and further 6000 host plants 
were inspected .  
iv. Additional areas surrounding restricted areas were surveyed.  
v. All properties identified with host plants , including citrus species and ornamental 
species , were surveyed . 
 6 • Ministry for Primary Industries  b) Control  areas were established  as buffer zones around the restricted area s where :  
• host plants were removed ; and   
• the movement of host plants or plant related material, equipment and 
machinery were prohibited.  
 
c) Advice on the disease, detection and reporting was provided  to citrus producers and 
the general public  through extension programmes and procedures and public 
awareness campaigns . 
4.3 COUNTRY FREEDOM  MAINTENANCE  
 
DAWE has documented systems and procedures in place to es tablish and maintain country 
freedom from Xanthomonas citri pv. citri” 
 
a) Systems used to establish Country Freedom ; 
i. Australia has a National Citrus Biosecurity Surveillance Strategy.   
• Xanthomonas citri pv. citri is identified as a high priority pest for 
Australian citrus .  
• Three surveys are carried out annually on each commercial 
production farm during the growing season . 
• Detailed information is provided to citrus growers on citrus canker 
surveillance (Plant Health Australia, 2018) .  
ii. Additional surveillance  was carried out on all properties which received plant 
material from the source of the outbreak.  
 
b) Maintenance  of Country Freedom ; 
i. Monthly inspections of susceptible species  in high risk sites  were carried out  
as part of the National Response Plan.  
ii. Verification surveillance of host plants were undertaken to achieve proof of 
freedom  
iii. On-going surveillance for citrus canker of citrus growing regions across 
Australia  as part of the National Citrus Biosecurity Surveillance Strategy 2018 -
2028. 
iv. The surveillance program targeted citrus canker and data was collated by 
Plant Health Australia.  
v. The surveillance program is coordinated by DAW E assistin g state and territory 
jurisdictions to deliver post -border surveillance programs. These programs 
target high priority citrus pests including citrus canker.  
4.4 COUNTRY FREEDOM  DECLARATION  
 
Country Freedom was declared by Australia in April 2021. An International Plant Protection 
Convention notifica tion was made on 30 April 2021.  
 
5 Feasibility  of the proposed change to the Standard  
 
The proposed change to the standard is feasible as prior to the outbreak of citrus canker, 
Australia had country freedom status.  
   
Ministry for Primary Industries   • 7 6 References  
CABI (202 1) Xanthomonas citri (citrus canker). In Crop Protection Compendium. CAB International; 
Wallingford, UK. https://www.cabi.org/cpc/datasheet/56921   Last modified 11 December 2020 . 
Accessed July 2021.  
 
Department of Agriculture and Water Resources (2018) National Citrus Biosecurity Surveillance 
Strategy  2018 - 2028 , Plant Health Australia.  National -Citrus -Biosecurity -Surveillance -Strategy.pdf 
(planthealthaustralia.com.au)  
 
NZOR (202 1) New Zealand Organisms Register http://www.nzor.org.nz/search   Accessed July 2021. 
 
ONZPR (202 1) Official New Zealand Pest Register. MPI public database. 
https://pierpestregister.mpi.govt.nz/   Accessed July 2021.  
 
MPI 2021. Ministry for Primary Industries Standard 152.02: Importation and  clearance of fresh fruit 
and vegetables into New Zealand. https://www.mpi.govt.nz/dmsdocument/1147/direct  Accessed July 
2021.  
 
Plant Health Australia, 2018. Citrus canker surveillance informa tion Citrus -Canker -Surveillance -Info-
Sheet -web.pdf (citrusaustralia.com.au)  Accessed July 2021.