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

September 13, 2010

Plant Health Programs (PHP)

Regulations, Permits and Manuals (RPM)

Contact Person: David Lamb
Rev: 7

Introduction

This risk management document was prepared by the Animal and Plant Health Inspection 

Service (APHIS) to provide risk management strategies for the importation of peppers from 

Central America (Costa Rica, El Salvador, Guatemala, Honduras, Nicaragua and Panama) 

following the development of a commodity-based, pathway-initiated risk analysis (PRA) that 

was conducted by the APHIS (USDA, 2009). 

In 2004, APHIS prepared a PRA to examine plant pest risks associated with the importation of 

fresh pepper (Capsicum spp., specifically the domesticated species Capsicum annuum L., C. 

baccatum L., C. chinense Jacq., C. frutescens L., and C. pubescens Ruiz & Pav.) fruit with stems 

in response to a request by the governments of Costa Rica, El Salvador, Guatemala, Honduras 

and Nicaragua (USDA, 2004). In 2008 in response to a request from Panama, APHIS updated 

the pest risk assessment document, and included Panama as an exporting country (USDA, 2009).

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

annuum, C. baccatum, C. chinense, and C. frutescens) 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 

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

(USDA, 2009).

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 fruit with stems 

from Costa Rica, El Salvador, Guatemala, Honduras, Nicaragua and Panama into the United 

States (USDA, 2009). The pests include eight insects, one bacterium, one fungus, and two 

viruses.

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
Rev: 7

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

Viruses

Andean potato mottle virus (APMoV) (Comoviridae)

Tomato severe leaf curl virus (ToSLCV) (Geminiviridae)

\

The pest risk potential was rated Low for the bacterium and High of all of other pests.

Table 1. Pest geographic distribution

Costa 

Rica

El Salvador Guatemala Honduras Nicaragua Panama

Anastrepha 

ludens X X X X X X

Ceratitis 

capitata X X X X X X

Faustinus 

ovatipennis X X

Liriomyza 

huidobrensis X X X X X X

Neoleucinodes 

elegantalis X X

Phenacoccus 

parvus

X X X

Planococcus 

minor X X X

Thrips palmi X X X X X X

Ralstonia 

solanacearum

race 3 biovar 

2

X X

Puccinia 

pampeana

X X

Andean potato

mottle virus

(APMoV)

X X X

Tomato 

severe leaf 

curl virus

(ToSLCV)

X X X
Rev: 7

Risk Mitigation Measures

The current 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 (USDA, 2009) did not significantly change the pest list and 

therefore the risk mitigations are the same. In the revised PRA, Capsicum sp. is reported as a 

minor host for Opogana sacchari (banana moth). However, there have been no interceptions of 

O. sacchari associated with Capsicum sp. imports. Therefore, Opogona sacchari is now listed as

not following the pathway of fresh pepper fruits, and has been removed from the list of pests that 

are inspected for in the risk mitigations below. Tomato yellow mosaic virus has also been 

dropped from the previous list of pests (see USDA, 2009) and the Bacterial wilt (Ralstonia

solanacearum race 3 biovar 2), and Tomato severe leaf curl virus were added to the pest list (see 

USDA, 2009). 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 spp., such as A. distincta, A. oblique, and A. serpentine, but only under 

laboratory conditions with artificial infestation; so those species were not included in the PRA

and hence mitigation measures are not included in the risk management document. The PRA 

found no evidence that A. ludens or the other species affect C. annuum in the field.

Since fruit of Ralstonia solanacearum race 3 biovar 2 susceptible solanaceous crops, such as 

peppers and tomatoes, only rarely contain the pathogen (Sanchez-Perez et al., 2008), the pest risk 

potential is considered to be low (USDA, 2009). The United States currently allows imports of

tomatoes and pepper fruits from Central American countries where R. solanacearum R3 B2 

occurs. APHIS regulates the importation of plants for planting (7 CFR 319.37-2) but does not 

regulate the importation of fruits. No mitigation for Ralstonia solanacearum race 3 biovar 2 is 

required. 

Mitigation measures for the importation of pepper fruits with steams from certain Central 

American countries (7 CFR 319.56-40).

Fresh pepper (Capsicum spp.) fruits with stems 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 baccatum, Capsicum chinense, and

Capsicum frutescens from areas free of Mediterranean fruit fly (Medfly) entry requirements 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 pests that occur in those 

countries (from table 1), the weevil Faustinus ovatipennis, pea leafminer, tomato fruit borer, 

lantana mealybug, passionvine mealybug, melon thrips, the rust fungus Puccinia pampeana, and 

the viruses Andean potato mottle virus and Tomato severe leaf curl virus); if any of these pests, 
Rev: 7

or other quarantine pests, are found to be infesting or infecting the production site, the NPPO 

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

mitigation has been achieved.

(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 have been inspected and found free of the 

pests listed in the requirements.”

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

Capsicum frutescens, and Capsicum pubescens from areas in which Medfly is present:

(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 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 
Rev: 7

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, and the viruses Andean potato mottle virus and Tomato severe leaf 

curl virus (if present in the country, according to table 1). If any of these pests or other 

quarantine pests are found to be generally infesting or infecting 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 of the exporting country 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 
Rev: 7

production site.

(i) Traps with 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 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 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, and the viruses Andean potato mottle virus and Tomato severe leaf 

curl virus (if present in the country, according to table 1). If any of these pests or other 

quarantine pests are found to be infesting or infecting 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 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 of the exporting country bearing the declaration, 
Rev: 7

“These peppers were grown in an approved production site and have 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.

 

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 baccatum, Capsicum chinense, and 

Capsicum frutescens 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 (Pest ID, 2008). 

Puccinia pampeana produces conspicuous symptoms and signs (Agrios, 2004; Hernández &

Hennen, 2003; Lindquist, 1982) that are easily recognizable on inspections in the Central 

American shipping country as well as at U.S. ports of entry inspections. Andean potato mottle 

virus and Tomato severe leaf curl virus were rated as high risk potential in the PRA, but their 

likelihood of establishment (contact with host material) is low. Since they are not transmitted by

seeds and transmitted mainly by vectors (Diabrotica balteata and Bemisia tabaci) (Pernezny et 

al., 2003), with historically few vector interceptions on peppers (USDA, 2009), we consider preharvest inspection of the growing site an appropriate mitigation. If the sites are found to be 

infected, the NPPO may allow to export from the production site only after the determination 

that the risk mitigation has been achieved.

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

packing house inspection and inspection by the Department of Homeland Security Customs and 

Border Protection (CBP) at the U.S. ports of entry. Infested or infected fruit will be rejected, and 

traceback will be accomplished 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 (USDA, 

2004) with no interceptions of program pests (Pest ID, 2008).

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

and culling removes damaged and infested/infected 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
Rev: 7

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

that will permit the importation of pepper from Central America while satisfying the appropriate 

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

independently, also mitigates risk and provides an acceptable level of phytosanitary protection.

Pest-free places of production as well as packinghouse and port of entry inspections provide the 

level of phytosanitary security required by the United States.

Authors

Walter Gould, Senior Risk Manager

APHIS-PPQ

José R. Hernández, Senior Risk Manager

APHIS-PPQ

David B. Lamb, Import Specialist

APHIS-PPQ

References

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Vegetable Quarantine Regulations).

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Florida, Elsevier Academic Press, San Diego. 922 pp.

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