United States Department of Agriculture

Animal and Plant Health Inspection Service

Plant Protection and Quarantine

Risk Management Document

Importation of Fresh Pepper – Capsicum annuum L., 

Capsicum baccatum L., Capsicum chinense Jacq, Capsicum 

frutescens L., and Capsicum pubescens Ruiz & Pav. – Fruit 

with Stems from Central America into the United States

January 15, 2010

Plant Health Programs (PHP)

Commodity Import Analysis and Operations (CIAO)

Contact Person: David Lamb
Rev. 5 January 15, 2010 3

Introduction

This risk management document was prepared to provide risk management strategies for peppers 

from Panama following the development of a commodity-based, pathway-initiated risk analysis

(PRA) that was conducted by the Animal and Plant Health Inspection Service (APHIS) of the 

United States Department of Agriculture (USDA). 

In 2004, APHIS prepared a pest risk assessment (PRA) to examine plant pest risks associated

with the importation of fresh pepper fruit with stems (Capsicum spp., specifically the 

domesticated species Capsicum annuum L., C. baccatum L., C. chinense Jacq, C. frutescens L.,

and C. pubescens Ruiz & Pav.) in response to a request by the governments of Costa Rica, El 

Salvador, Guatemala, Honduras and Nicaragua (APHIS, 2004). In 2008 in response to a request 

from Panama, APHIS updated the risk assessment document, and included Panama as an 

exporting country (APHIS 2009).

The PRA considered the risk associated with the import of several species of Capsicum (C. 

annuum, C. frutescens, C. baccatum, and C. chinense) because of taxonomic uncertainty

regarding the species status (Walsh and Hoot, 2001) and because wild populations of C. annuum

merge with populations of C. frutescens and C. chinense (Eshbaugh, 1993). There is a wide 

overlap of common name usage among all domesticated Capsicum species (Bosland, 1996), so

other two cultivated species (C. pubescens and C. baccatum) were also included in the PRA.

Title 7 of the Code of Federal Regulations 319 Part 56 (7 CFR § 319., 2007) provides regulatory

authority for the importation of fruits and vegetables from foreign sources into the United States.

The PRA lists 12 quarantine pests that may follow the pathway of fresh peppers from Central 

America. The pests include eight insects, one bacterium, one fungus, and two viruses, the pest 

risk potential of all of these pests is rated High:

Insects

Anastrepha ludens (Loew) (Diptera: Tephritidae) - Mexfly

Ceratitis capitata Wiedemann (Diptera: Tephritidae) - Medfly

Faustinus ovatipennis (Champion) (Coleoptera: Curculionidae) - weevil

Liriomyza huidobrensis (Blanchard) (Diptera: Agromyzidae) – pea leafminer

Neoleucinodes elegantalis (Guenée) (Lepidoptera: Crambidae) – tomato fruit borer

Phenacoccus parvus Morrison (Hemiptera: Pseudococcidae) – lantana mealybug

Planococcus minor (Maskell) (Hemiptera: Pseudococcidae) – passion vine mealybug

Thrips palmi Karny (Thysanoptera: Thripidae) – melon thrips

Bacterium

Ralstonia solanacearum race 3 biovar 2 (Smith) Yabuuchi et al. (Burkholderiales)

Fungus

Puccinia pampeana Speg. (Urediniomycetes: Uredinales) – rust fungus

Viruses
Rev. 5 January 15, 2010 4

Andean potato mottle virus (APMoV) (Comoviridae)

Tomato severe leaf curl virus (ToSLCV) (Geminiviridae)

Risk Mitigation Measures

The requirements for the importation of peppers from certain Central American countries are 

listed in the Code of Federal Regulations § 319.56-40. The addition of Panama as an importing 

country in the PRA did not significantly change the pest list and therefore the risk mitigations are 

the same, except that in the revised PRA Capsicum spp. is reported as a minor host for Opogona 

sacchari. Further, there have been no interceptions of O. sacchari associated with Capsicum

spp. imports. Therefore, the banana moth Opogona sacchari, is now listed as not following the 

pathway of fresh peppers, and has been removed from the list of pests that are inspected for in 

the risk mitigations below. Also, tomato yellow mosaic virus has been dropped from the 

previous list of pests (need justification). Bacterial wilt Ralstonia solanacearum race 3 biovar 2

and tomato severe leaf curl (need mitigations)(Note: In reference to item (c) below, the PRA 

indicated that the only field host of Mexican fruit fly (A. ludens) is C. pubescens. Capsicum 

annuum is a host of A. ludens, and other Anastrepha species, such as A. distincta, A obliqua, and 

A. serpentina, but only under laboratory conditions with artificial infestation, so those fruit fly

species were not included in the PRA and hence mitigation measures not included in the risk 

management document. The PRA found no evidence that A. ludens or the other Anastrepha

species affect C. annuum in the field. 

The following mitigations are listed under § 319.56-40 as requirements for importation of 

peppers. 

§ 319.56-40 Peppers from certain Central American countries.

Fresh peppers (Capsicum spp.) may be imported into the United States from Costa Rica, El 

Salvador, Guatemala, Honduras, Nicaragua and Panama only under the following conditions and 

in accordance with all other applicable provisions of this subpart:

(a) For peppers of the species Capsicum annuum, Capsicum frutescens, Capsicum baccatum, and 

Capsicum chinense from areas free of Mediterranean fruit fly (Medfly), terms of entry are as 

follows:

(1) The peppers must be grown and packed in an area that has been determined by APHIS to be 

free of Medfly in accordance with the procedures described in §319.56–5 of this subpart.

(2) A pre-harvest inspection of the growing site must be conducted by the national plant 

protection organization (NPPO) of the exporting country for the weevil Faustinus ovatipennis, 

pea leafminer, tomato fruit borer, lantana mealybug, passionvine mealybug, melon thrips, the 

rust fungus Puccinia pampeana, tomato severe leaf curl, Ralstonia solanacearum race 3 biovar 2

, Andean potato mottle virus ., and if these pests are found to be generally infesting the growing 

site, the NPPO may not allow export from that production site until the NPPO has determined 

that risk mitigation has been achieved.
Rev. 5 January 15, 2010 5

(3) The peppers must be packed in insect-proof cartons or containers or covered with insectproof mesh or plastic tarpaulin at the packinghouse for transit to the United States. These 

safeguards must remain intact until arrival in the United States.

(4) The exporting country's NPPO is responsible for export certification, inspection, and issuance 

of phytosanitary certificates. Each consignment of peppers must be accompanied by a 

phytosanitary certificate issued by the NPPO and bearing the declaration, “These peppers were 

grown in an area recognized to be free of Medfly.” and the consignment has been inspected and 

found free of the pests listed in the requirements.”

(b) For peppers of the species Capsicum annuum, Capsicum frutescens, Capsicum baccatum, 

Capsicum chinense, and Capsicum pubescens from areas in which Medfly is considered to exist:

(1) The peppers must be grown in approved production sites registered with the NPPO of the 

exporting country. Initial approval of the production sites will be completed jointly by the 

exporting country's NPPO and APHIS. The exporting country's NPPO will visit and inspect the 

production sites monthly, starting 2 months before harvest and continuing through until the end 

of the shipping season. APHIS may monitor the production sites at any time during this period.

(2) Pepper production sites must consist of pest-exclusionary greenhouses, which must have 

double self-closing doors and have all other openings and vents covered with 1.6 mm (or less) 

screening.

(3) Registered sites must contain traps for the detection of Medfly both within and around the 

production site.

(i) Traps with an approved protein bait must be placed inside the greenhouses at a density of four 

traps per hectare, with a minimum of two traps per greenhouse. Traps must be serviced on a 

weekly basis.

(ii) If a single Medfly is detected inside a registered production site or in a consignment, the 

registered production site will lose its ability to export peppers to the United States until APHIS 

and the exporting country's NPPO mutually determine that risk mitigation is achieved.

(iii) Medfly traps with an approved lure must be placed inside a buffer area 500 meters wide 

around the registered production site, at a density of 1 trap per 10 hectares and a minimum of 10 

traps. These traps must be checked at least every 7 days. At least one of these traps must be near 

the greenhouse. Traps must be set for at least 2 months before export and trapping must continue 

to the end of the harvest.

(iv) Capture of 0.7 or more Medflies per trap per week will delay or suspend the harvest, 

depending on whether harvest has begun, for consignments of peppers from that production site 

until APHIS and the exporting country's NPPO can agree that the pest risk has been mitigated.

(v) The greenhouse must be inspected prior to harvest for the weevil Faustinus ovatipennis, pea 
Rev. 5 January 15, 2010 6

leafminer, tomato fruit borer, lantana mealybug, passionvine mealybug, melon thrips, the rust 

fungus Puccinia pampeana, tomato severe leaf curl, Ralstonia solanacearum race 3 biovar 2 and 

Andean potato mottle virus . If any of these pests, or other quarantine pests, are found to be 

generally infesting the greenhouse, export from that production site will be halted until the 

exporting country's NPPO determines that the pest risk has been mitigated.

(4) The exporting country's NPPO must maintain records of trap placement, checking of traps, 

and any Medfly captures. The exporting country's NPPO must maintain an APHIS-approved 

quality control program to monitor or audit the trapping program. The trapping records must be 

maintained for APHIS' review.

(5) The peppers must be packed within 24 hours of harvest in a pest-exclusionary packinghouse. 

The peppers must be safeguarded by an insect-proof mesh screen or plastic tarpaulin while in 

transit to the packinghouse and while awaiting packing. Peppers must be packed in insect-proof 

cartons or containers, or covered with insect-proof mesh or plastic tarpaulin, for transit to the 

United States. These safeguards must remain intact until arrival in the United States or the 

consignment will be denied entry into the United States.

(6) During the time the packinghouse is in use for exporting peppers to the United States, the 

packinghouse may accept peppers only from registered approved production sites.

(7) The exporting country's NPPO is responsible for export certification, inspection, and issuance 

of phytosanitary certificates. Each consignment of peppers must be accompanied by a 

phytosanitary certificate issued by the NPPO and bearing the declaration, “These peppers were 

grown in an approved production site and the consignment has been inspected and found free of 

the pests listed in the requirements.” The shipping box must be labeled with the identity of the 

production site.

(c) For peppers of the species Capsicum pubescens from areas in which Mexican fruit fly

(Mexfly) is considered to exist:

(1) The peppers must be grown in approved production sites registered with the NPPO of the 

exporting country. Initial approval of the production sites will be completed jointly by the 

exporting country's NPPO and APHIS. The exporting country's NPPO must visit and inspect the 

production sites monthly, starting 2 months before harvest and continuing through until the end 

of the shipping season. APHIS may monitor the production sites at any time during this period.

(2) Pepper production sites must consist of pest-exclusionary greenhouses, which must have 

double self-closing doors and have all other openings and vents covered with 1.6 mm (or less) 

screening.

(3) Registered sites must contain traps for the detection of Mexfly both within and around the 

production site.

(i) Traps with an approved protein bait must be placed inside the greenhouses at a density of four 

traps per hectare, with a minimum of two traps per greenhouse. Traps must be serviced on a 
Rev. 5 January 15, 2010 7

weekly basis.

(ii) If a single Mexfly is detected inside a registered production site or in a consignment, the 

registered production site will lose its ability to ship under the systems approach until APHIS 

and the exporting country's NPPO mutually determine that risk mitigation is achieved.

(iii) Mexfly traps with an approved protein bait must be placed inside a buffer area 500 meters 

wide around the registered production site, at a density of 1 trap per 10 hectares and a minimum 

of 10 traps. These traps must be checked at least every 7 days. At least one of these traps must be 

near the greenhouse. Traps must be set for at least 2 months before export, and trapping must 

continue to the end of the harvest.

(iv) Capture of 0.7 or more Mexflies per trap per week will delay or suspend the harvest, 

depending on whether harvest has begun, for consignments of peppers from that production site 

until APHIS and the exporting country's NPPO can agree that the pest risk has been mitigated.

(v) The greenhouse must be inspected prior to harvest for the weevil Faustinus ovatipennis, pea 

leafminer, tomato fruit borer, , lantana mealybug, passionvine mealybug, melon thrips, the rust 

fungus Puccinia pampeana, tomato severe leaf curl, Andean potato mottle virus, and Ralstonia 

solanacearum race 3 biovar 2. If any of these pests, or other quarantine pests, are found to be 

generally infesting the greenhouse, export from that production site will be halted until the 

exporting country's NPPO determines that the pest risk has been mitigated.

(4) The exporting country's NPPO must maintain records of trap placement, checking of traps, 

and any Mexfly captures. The exporting country's NPPO must maintain an APHIS-approved 

quality control program to monitor or audit the trapping program. The trapping records must be 

maintained for APHIS' review.

(5) The peppers must be packed within 24 hours of harvest in a pest-exclusionary packinghouse. 

The peppers must be safeguarded by an insect-proof mesh screen or plastic tarpaulin while in 

transit to the packinghouse and while awaiting packing. Peppers must be packed in insect-proof 

cartons or containers, or covered with insect-proof mesh or plastic tarpaulin, for transit to the 

United States. These safeguards must remain intact until arrival in the United States or the 

consignment will be denied entry into the United States.

(6) During the time the packinghouse is in use for exporting peppers to the United States, the 

packinghouse may accept peppers only from registered approved production sites.

(7) The exporting country's NPPO is responsible for export certification, inspection, and issuance 

of phytosanitary certificates. Each consignment of peppers must be accompanied by a 

phytosanitary certificate issued by the NPPO and bearing the declaration, “These peppers were 

grown in an approved production site and the consignment has been inspected and found free of 

the pests listed in the requirements.” The shipping box must be labeled with the identity of the 

production site.
Rev. 5 January 15, 2010 8

 

Efficacy of Risk Mitigation Measures

Establishment of pest-free places of production obviates the need for post-harvest commodity

treatments to achieve phytosanitary security (IPPC 1996; 1999). Pest free places of production

have been used successfully to prevent infestation by Mediterranean fruit fly (Medfly) for

peppers of the species Capsicum annuum, Capsicum frutescens, Capsicum baccatum, and 

Capsicum chinense in Costa Rica, El Salvador, Guatemala, Honduras, and Nicaragua since 2005. 

No pests of quarantine significance have been intercepted by APHIS on peppers imported using 

this systems approach.

Central American fresh peppers produced under this systems approach will also be subject to 

inspection by Department of Homeland Security Customs and Border Protection (CBP) at the 

U.S. ports-of-entry. Infested fruit will be rejected, and traceback will be done by APHIS and the 

NPPO of the originating country to identify and correct problems including removal of the 

packinghouse or area of production from the export program. A systems approach can provide an 

alternative to single measures to meet the appropriate level of phytosanitary protection, or can be 

developed to provide phytosanitary protection in situations, in which no single measure is 

available (IPPC, 2002). Fresh peppers from Costa Rica, El Salvador, Guatemala, Honduras, and 

Nicaragua have been produced and exported to the United States under a systems approach for 

fruit flies for over four years with no interceptions of program pests. (USDA, 2009).

Pest-exclusionary greenhouses remove pests from production sites (7 CFR § 319.56-40 (b)(2)) 

and culling removes damaged and infested fruit at the packing house. As part of a systems 

approach these measures are effective at lowering pest populations. No fruit flies have been 

intercepted on produce coming from pest exclusionary structures in any of the programs for 

peppers or tomatoes.

Summary

There are several risk management measures available for the high-risk pests identified above 

that will permit the importation of pepper from Panama while satisfying the appropriate level of 

phytosanitary protection for the United States. Pest-free places of pepper production, provide the 

level of phytosanitary security required by the United States. A systems approach utilizing pestexclusion greenhouse as described above, employing a combination of measures acting 

independently, if properly implemented, also mitigates risk and provides an acceptable level of 

phytosanitary protection.

Authors

Walter Gould, Senior Risk Manager

APHIS-PPQ

Jose Hernandez, Senior Risk Manager

APHIS-PPQ
Rev. 5 January 15, 2010 9

David B. Lamb, Import Specialist

APHIS-PPQ

References

7 CFR § 319. 2007. Code of Federal Regulations, Title 7, Part 319 (7 CFR §319.56 - Fruit and 

Vegetable Quarantine Regulations).

IPPC. 1996. Requirements for the establishment of pest free areas. International Standards for 

Phytosanitary Measures No. 4. Rome: Secretariat of the International Plant Protection 

Convention, United Nations Food and Agriculture Organization.

IPPC. 1999. Requirements for the establishment of pest free places of production and pest free 

production sites. International Standards for Phytosanitary Measures No. 10. Rome: 

Secretariat of the International Plant Protection Convention, United Nations Food and 

Agriculture Organization.

IPPC. 2002. The use of integrated measures in a systems approach for pest risk management. 

International Standards for Phytosanitary Measures No. 14. Rome: Secretariat of the 

International Plant Protection Convention, United Nations Food and Agriculture 

Organization.

USDA. 2008b. Treatment Manual. USDA-APHIS-PPQ; 

http://www.aphis.usda.gov/import_export/plants/manuals/ports/treatment.shtml

USDA. 2009. Importation of Fresh Pepper- Capsicum annuum L., Capsicum baccatum L., 

Capsicum chinense Jacq, Capsicum frutescens L., and Capsicum pubescens Ruiz & Pav.-

Fruit with Stems from Central America into the United States. A Qualitative, PathwayInitiated Risk Analysis. January 21, 2009. Plant Epidemiology and Risk Analysis 

Laboratory, Center for Plant Health Science and Technology, Plant Protection and 

Quarantine, Animal and Plant Health Inspection Service.