10/2019-01 Emergency Management Framework 1

United States Department of Agriculture 

Animal and Plant Health Inspection Service 

Plant Protection and Quarantine

National Plant Health 

Emergency Management 

Framework
10/2019-01 Emergency Management Framework 2

The U.S. Department of Agriculture (USDA) prohibits discrimination in all its programs and activities on the basis of race, color, 

national origin, age, disability, and where applicable, sex, marital status, familial status, parental status, religion, sexual orientation, 

genetic information, political beliefs, reprisal, or because all or part of an individual’s income is derived from any public assistance 

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of program information (Braille, large print, audiotape, etc.) should contact USDA’s TARGET center at (202) 720-2600 (voice and 

TDD). To file a complaint of discrimination, write to USDA, Director, Office of Civil Rights, 1400 Independence Avenue, SW, 

Washington, DC 20250-9410, or call (800) 795-3272 (voice) or (202) 720-6382 (TDD). USDA is an equal opportunity provider and 

employer.

The opinions expressed by individuals in this report do not necessarily represent the policies of the U.S. Department of Agriculture.
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Contents

Deputy Administrator’s Letter........................................................................................................ 4

Chapter 1: Introduction................................................................................................................... 5

Chapter 2: Plant Protection and Quarantine.................................................................................. 11

Chapter 3: Pest Exclusion ............................................................................................................. 13

Chapter 4: Preparedness................................................................................................................ 24

Chapter 5: Response ..................................................................................................................... 34

Chapter 6: Recovery ..................................................................................................................... 53

Chapter 7: Roles and Responsibilities .......................................................................................... 57

Chapter 8: State Plant Protection Resources................................................................................. 66

Glossary ........................................................................................................................................ 69

Index ............................................................................................................................................. 75
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Deputy Administrator’s Letter

November 1, 2017

Dear Colleagues and Stakeholders:

The goal of APHIS’ Plant Protection and Quarantine (PPQ) program is to safeguard America’s 

agricultural and natural resources from the introduction and establishment of exotic, 

economically significant invasive plant pests. PPQ provides Federal leadership to maintain a 

strong continuum of overlapping safeguards to prevent, prepare for, respond to, and recover from 

invasive pest introductions in the United States. This continuum begins offshore, continues 

through U.S. ports of entry, and extends across the nation.

PPQ’s success in effectively maintaining this safeguarding continuum depends heavily upon the 

close cooperation and coordination of key stakeholders, including Federal partners; State, local, 

and tribal governments; industry; nongovernmental institutions; and researchers and academics. 

Working closely with these stakeholders, PPQ develops and implements science-based pest 

prevention, early detection, rapid response, and practical recovery systems. They provide 

maximum protection to U.S. agricultural and natural resources, while posing minimal hazard to 

consumers, producers, and the environment.

We developed this Emergency Management Framework (referred to as the Framework) as a 

reference that clearly identifies and outlines the elements of these systems. It will help the highly 

skilled individuals and experts involved in maintaining PPQ’s safeguarding continuum, 

including our many external cooperators, to fully understand the roles and responsibilities of the 

numerous interrelated aspects of prevention, preparedness, response, and recovery. Through this 

Framework, PPQ officials and our many partners will coordinate operations more quickly and 

effectively, ensuring America's agricultural and natural resources remain healthy and productive.

As always, we thank you for your hard work and support. 

Sincerely,

Osama El-Lissy, Deputy Administrator USDA–APHIS–PPQ
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Chapter 1: Introduction

Purpose

The United States Department of Agriculture, Animal and Plant Health Inspection Service, Plant 

Protection and Quarantine (USDA–APHIS–PPQ) National Plant Health Emergency 

Management Framework describes the response of PPQ and its cooperators to plant health and 

homeland security emergencies.

In addition to providing background information and resources needed by responders, the 

framework describes the roles and responsibilities of PPQ Program Managers in policy 

management, field operations, science and technology, and state plant protection agencies in the 

48 contiguous states, Hawaii, and Alaska, the U.S. territories and commonwealths, and tribes.

The framework addresses the roles of other Federal agencies and APHIS units, which vary 

depending on the nature of the issues and the extent of their involvement. The framework also 

describes the roles and responsibilities of the interrelated components of PPQ’s safeguarding 

system including preparedness, pest exclusion, response, and recovery elements.

Pest exclusion is synonymous with prevention. Pest exclusion involves activities conducted to 

eliminate or mitigate the risk of invasive plant pest introductions. Examples of preventive efforts 

include:

• Offshore commodity preclearance programs ensuring foreign commodities are free of 

plant pests before reaching the United States

• Conducting commodity pest risk assessments and instituting mitigation practices to 

ensure safe trade

• Agriculture quarantine inspections (AQI) at border crossings and other U.S. ports of 

entry, which are conducted by the U.S. Department of Homeland Security’s Customs and 

Border Protection (DHS–CBP) in coordination with PPQ and its plant pest regulatory 

authority

• AQIs conducted by USDA–PPQ officers at PPQ Plant Inspection Stations located at 16

U.S. ports of entry

• Identifying pests and diseases detected at U.S. ports of entry by USDA–PPQ identifiers 

located at more than 34 ports of entry nationwide

• Smuggling Interdiction and Trade Compliance (SITC) activities preventing the 

smuggling of prohibited and potentially infested plant commodities and to ensure 

compliance with phytosanitary requirements for imported and domestic commodities 

moving interstate and sold in retail markets
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Preparedness is essential to maintaining the ability to implement an effective emergency 

response to invasive plant pest introductions. Preparedness supports PPQ and its cooperators in 

the following ways:

• Identifying resources necessary for pest management, emergency response, and 

coordination

• Establishing the infrastructure required to maintain a strong safeguarding system, 

especially as it relates to pest early warning systems (e.g., the PestLens program),survey 

systems (e.g., the Cooperative Agricultural Pest Survey (CAPS) program), and 

identification and diagnostic systems (e.g., the National Identification Service (NIS) and 

National Plant Diagnostic Network (NPDN)), including interagency cooperation within 

the National Biosurveillance Integration System (NBIS) and interagency collaboration 

between the DHS–National Biosurveillance Integration Center (NBIC) and the 

Biosurveillance Indications and Warning Analytic Community (BIWAC)

• Conducting appropriate training to ensure and maintain rapid, consistent, and effective 

pest management, emergency response, and coordination

The response element of the safeguarding system involves the activities that occur immediately 

after a significant invasive plant pest incident or outbreak is detected. Significant aspects of the 

response element performed by PPQ and its cooperators include the following:

• Establishing national lab capacity for official plant pest diagnosis

• Deploying a fast and accurate data management system for use in tracking sample 

information and final results

• Conducting risk analysis to fully understand the pest, its potential impact to U.S. 

agriculture and the environment, and identify potential technically based options for 

response

• Rapid detection and delimiting surveys

• Mobilization of emergency personnel and resources using the Incident Command System 

(ICS) under a unified command structure

• Establishing a Technical Working Group (TWG) to consider scientific aspects of the 

response

• Obtaining emergency funding

• Enacting an emergency regulatory framework

• Maintaining compliance with environmental laws

• Implementing protocols for communications, public outreach, and data management

The recovery element of the safeguarding system relates to the development and implementation 

of activities designed to provide stability and protection to an invasive plant pest emergency.

These activities can occur simultaneously during and following any invasive plant pest 

emergency response. Aspects of recovery include the following:

• Demobilization of emergency response personnel and resources

• Critique of the response program
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• Development of a long-term recovery plan

• Development of a long-term safeguarding system

• Identification and application of science-based pest mitigation solutions

• Sustained public outreach

The Framework covers all four elements in detail, providing PPQ employees and cooperators 

with a guide to understand all aspects of the U.S. plant health safeguarding system. This 

knowledge will enhance the ability of PPQ employees and cooperators to operate quickly, 

effectively, and in coordination with one another to successfully maintain this national 

safeguarding system.

Users

All PPQ employees, Federal and State cooperators, and stakeholders should be familiar with and 

use the framework for guidance and to promote uniformity.

Scope

The Framework is divided into eight chapters:

1. Introduction

2. Plant Protection and Quarantine

3. Pest Exclusion

4. Preparedness

5. Response

6. Recovery

7. Roles and Responsibilities

8. State Plant Protection Resources

The Framework also includes a glossary and an index.

The introduction contains basic information regarding the Framework including its purpose, 

scope, users, and application; a list of related documents providing the authority for the content; 

and directions for use.

Authorities and Enabling Legislation

The primary legislation enabling or directly relating to PPQ emergency response authorities are 

as follows:

• Plant Protection Act of 2000

• Cooperation with State agencies in the Administration and Enforcement of Certain 

Federal Laws Act, approved September 28, 1962

• Homeland Security Presidential Directives

• Agriculture Bioterrorism Protection Act of 2002

• Federal Insecticide, Fungicide, and Rodenticide Act (FIFRA), as amended

• Privacy Act of 1974

• National Environmental Policy Act (NEPA), 1969

• Endangered Species Act (ESA), 1973
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• Agriculture Bioterrorism Protection Act of 2002

• Public Health Security and Bioterrorism Preparedness and Response Act of 2002

• Federal Noxious Weed Act of 1974

• Federal Seed Act, issued March 1940

• Noxious Weed Control and Eradication Act of 2004

Refer to the PPQ Emergency Response Manual (formerly PPQ Emergency Programs Manual) 

for more information on these acts and directives.

PPQ has aligned the Framework with key national and USDA emergency management policies 

and plans, including the following:

• Homeland Security Directives (especially HSPD 5, 7, 8, and 9)

• Presidential Policy Directives (especially PPD 8 National Preparedness Goal)

• The National Response Framework

• The National Incident Management System

• USDA’s Strategic Plan

• APHIS’ 2015–2019 Strategic Plan

• PPQ’s 2015–2019 Strategic Plan

To fulfill its emergency management responsibilities, PPQ cooperates with other APHIS 

programs and federal agencies; State, local, Tribal, Territorial, and foreign governments; 

nongovernmental organizations; and the private sector.

How to Use

The Framework is a portable electronic document that is updated periodically. Please download 

the current version of the Framework from its source and use Adobe Reader® to view it on your 

computer screen. You can print the Framework for convenience. However, links and 

navigational tools are only functional when the document is viewed in Adobe Reader®. Printed 

copies of the Framework are obsolete once a new version has been issued.

Conventions

Conventions are established by custom and widely recognized and accepted.

PHP–PDEP

The smaller, bold-face green subheadings (as shown above) indicate the acronym for the PPQ 

units responsible for the activities described. Use these subheadings to quickly find the 

information specific to a particular unit.

Find Web site addresses and other information on how to use the resources in a box at the end of 

each topic.

PPQ Emergency Response Manual

https://www.aphis.usda.gov/import_export/plants/manuals/emergency/downloads/epm.pdf
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Control Data

Information placed at the bottom of the page is the month, year, document title, and page 

number. PPQ–Pest Detection and Emergency Programs–Emergency Programs (PPQ–PDEP) is 

the unit responsible for the content of the Framework.

Heading Levels

Each chapter and section can contain three heading levels; each heading is green. The first-level 

heading looks like This. The second- and third-level headings each have a smaller font than 

the preceding heading level. The small, bold-face acronyms (e.g., PPQ–FO) indicate the units 

responsible for the activities described in the accompanying text.

Italics

The following items are italicized throughout the framework:

• Names of publications

• Scientific names

Transmittal Number

The transmittal number contains the month, year, and a consecutively issued number (beginning 

with -01 for the first edition and increasing consecutively for each update to the edition). The 

transmittal number is only changed when the specific chapter sections, appendices, glossary, 

tables, or index is updated. If no changes are made, the transmittal number remains the 

unchanged. The transmittal number only changes for the entire Framework when a new edition 

is issued or changes are made to the entire Framework.

How to Cite the Framework

Cite the Framework as follows: U.S. Department of Agriculture, Animal Plant Health Inspection 

Service, Plant Protection and Quarantine. National Plant Health Emergency Management 

Framework (Washington, D.C.: Government Printing Office, 2017).
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How to Find More Information

Contact the Director of Pest Detection and Emergency Programs for further information 

concerning the Framework.

Valerie DeFeo

Director of Pest Detection and Emergency Programs 

USDA–APHIS–PPQ–PDEP

Office: 301-851-2086

Email: valerie.defeo@usda.gov
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Chapter 2: Plant Protection and Quarantine

Introduction

The U.S. Department of Agriculture, Animal, and Plant Health Inspection Service (USDA–

APHIS) in cooperation with other Federal and State agencies with closely allied missions, 

safeguard agricultural and natural resources to ensure an abundant, high-quality, and varied food 

supply. Plant Protection and Quarantine (APHIS–PPQ) is the integral component of USDA–

APHIS and is responsible for safeguarding plant health in the United States.

Mission Statement

We safeguard U.S. agriculture and natural resources against the entry, establishment, and spread 

of economically and environmentally significant pests, and we facilitate the safe international 

trade of agricultural products.

PPQ is divided into three core functional areas (CFAs) and the Deputy Administrator’s (DA) 

office:

• Office of the Deputy Administrator (ODA)

• Policy Management

• Science and Technology

• Field Operations

While each CFA has a specific designated area of responsibility, they all work in close 

coordination to fulfill PPQ’s overall safeguarding mission. The roles and responsibilities of each 

PPQ subunit are described in this chapter.

Refer to the APHIS–PPQ Web site for further information.

Office of the Deputy Administrator

The PPQ Deputy Administrator provides executive leadership and strategic direction. The PPQ 

Deputy Administrator reports directly to the APHIS Administrator and is a member of the 

APHIS Management Team. PPQ is organized around three core functional areas critical to our 

mission delivery: Policy Management (PM), Field Operations (FO), and Science and Technology 

(S&T). These interdependent functional areas collaborate to provide science-based solutions for 

plant protection issues.

Policy Management

PPQ’s PM staff provides national coordination for the policy and regulatory framework 

associated with emergency and domestic preparedness, response, and recovery efforts against 

threats to plant health. PPQ–PM provides budgetary, technical, and environmental

PPQ organization structure

https://www.aphis.usda.gov/aphis/ourfocus/planthealth/ppq-program-overview/ppq-organization

PPQ mission, goals, and objectives

https://www.aphis.usda.gov/aphis/banner/aboutaphis
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documentation support to national pest programs. PPQ–PM also supports efforts to ensure 

science-based systems are available for early detection, rapid response, and practical recovery to 

provide maximum protection for U.S. agricultural and natural resources, while safeguarding the 

environment and minimizing the impact on consumers and producers.

These capabilities are also available, as needed and when applicable, to support Federal disaster 

response efforts and other significant homeland security needs.

Science and Technology

PPQ’s S&T CFA supports PPQ regulatory decisions and operations through methods 

development, scientific investigation, data and risk analyses, and technology. PPQ–S&T works 

to identify pathways used by exotic plant pests and noxious weeds; assess risks posed by exotic 

pests to food, fiber, and the environment; develop, adapt, and support methods and technology to 

detect, identify, and mitigate the impact of significant exotic pests; and ensure detection and 

identification methods, survey protocols, and tools used by PPQ are effective and efficient. S&T 

is comprised of seven principal laboratories with satellite locations across the United States and 

in Guatemala.

Field Operations

PPQ’s FO offices provide leadership and coordination for field activities for emergency and 

domestic pest exclusion, preparedness, response, and recovery efforts against plant health 

threats.

This CFA unifies FO management to yield effective and sustainable support for program 

delivery. FOs are managed seamlessly, blending policy and science for effective program 

delivery. FO focuses on the highest risks and utilizes critical information supported by robust 

analysis.

Another critical component of PPQ’s organization is the State Plant Health Director’s (SPHD) 

office. PPQ maintains a SPHD in every U.S. State and Puerto Rico; in a few instances, an SPHD 

is assigned more than one State or U.S. Territory. The SPHDs oversee operational activities 

within their assigned State or States and work closely with their counterpart State Plant 

Regulatory Official (SPRO) to ensure communication and coordination, conduct joint training of 

the work force, and manage plant pest emergency preparedness, pest exclusion, response, and 

recovery efforts at the local level.

PPQ S&T

https://www.aphis.usda.gov/planthealth/cphst
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Chapter 3: Pest Exclusion

Introduction

Pest exclusion involves activities conducted to eliminate or mitigate the risk of invasive plant 

pest introductions. Pest exclusion—also known as prevention— encompasses an array of 

activities including the development and management of regulatory policy and programs that 

ensure safe trade and the exclusion of quarantine plant and animal pests and diseases.

Plant Protection and Quarantine’s Plant Health Programs (PPQ–PHP) unit works with trading 

partners and international plant protection organizations to develop and implement early 

detection and control strategies designed to prevent the entry of invasive pests and diseases into 

the United States. PPQ maintains personnel at ports of entry to conduct inspections at plant 

inspection stations, oversee fumigations, conduct pest identifications, and maintain compliance 

activities. In addition, PPQ partners with the U.S. Department of Homeland Security’s Customs 

and Border Protection (DHS–CBP) and State plant protection resources to ensure the continued 

success of agricultural inspections at all U.S. ports of entry and inspections at interim or final 

destinations.

PPQ’s pest exclusion strategies include the following:

• Offshore pest surveillance

• Phytosanitary issues management

• Risk and pathway analysis

• Development of trade-related regulations

• Issuance of permits

• PPQ preclearance program

• CBP–Agriculture Quarantine Inspection

• PPQ–Agriculture Quarantine Inspection

• Plant inspection stations

• Pest identification

• Treatments and fumigations

• Development of Agriculture Quarantine Inspection (AQI) and port technologies

• Preclearance and offshore programs

• Predeparture programs

• Mitigation of agricultural pests in neighboring and offshore countries

• Smuggling interdiction and trade compliance

• Select agent program
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Offshore Pest Surveillance

PPQ–PM

PPQ’s mission is to protect U.S. agriculture and natural resources against the introduction of 

exotic plant pests. To fulfill this mission, PPQ carries out numerous safeguarding functions 

including port-of-entry inspections, preclearance in exporting countries, pest surveillance, pest 

risk analysis, and eradication and containment efforts. All of these functions depend on current 

biological information regarding exotic pests, such as distribution, host range, history of spread, 

and susceptibility to control measures.

Information evolves continuously as each pest situation changes and new insights are gained.

PestLens allows PPQ to stay current on newly emerging pest information and provides a 

mechanism for documenting and coordinating safeguarding actions by the following:

• Gathering emerging information from a wide range of sources including several hundred 

scientific journals, Web sites, email groups, newsletters, automated Internet search 

queries, and contributions from regulatory officials

• Summarizing this information, together with relevant background knowledge, and 

reporting it in a weekly email notification

• Providing a conceptual framework for making and coordinating safeguarding decisions

• Making the original information and resulting decisions and actions accessible through a 

Web-enabled database

PestLens is the result of the merger of two previously existing PPQ systems—Exotic Pest 

Information Collection and Analysis (EPICA) and the Offshore Pest Information System (OPIS). 

Previous OPIS and EPICA reports remain accessible through the PestLens database.

PestLens reports new information regarding plant pests of U.S. quarantine significance 

especially the following:

• New distribution records (country level)

• New host records

• Significant outbreaks

• Emerging pests of economic significance

• Weed naturalization

• New pathogen/vector relationships

• Research results of interest to the regulatory community

APHIS personnel can self-register for the PestLens system at https://pestlens.info.
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Phytosanitary Issues Management

PPQ–ODA

The Phytosanitary Issues Management (PIM) unit ensures the export and import of agricultural 

commodities occur in accordance with science- based standards to effectively mitigate pest risks.

PIM is recognized as the National Plant Protection Organization (NPPO) for the United States 

under the International Plant Protection Convention (IPPC) and acts on behalf of PPQ. PIM is 

the primary point of contact for all technical plant health communication with trading partners, 

leads the development of plant health policy and strategy, and coordinates the implementation of 

technical solutions to phytosanitary trade barriers.

PIM, in collaboration with other PPQ units, addresses phytosanitary technical barriers by:

• Initiating and presenting scientific and technical studies to support safe, science-based 

trade

• Encouraging trading partners to harmonize import requirements with international 

standards and guidelines

• Providing a conceptual framework for making and coordinating safeguarding decisions

• Building domestic and international consensus among trading partners, industry, the 

scientific community, and other Federal agencies for feasible, science-based solutions to 

technical trade barriers

PIM also coordinates with PPQ Export Services to support an internationally accepted system of 

phytosanitary certification in accordance with international standards.

Plant Health Programs

PPQ–PM

PPQ’s Plant Health Programs (PPQ–PHP) staff provides national coordination for phytosanitary 

quarantine and trade policies; plants for planting, plant material import and export, preclearance 

activities, and regulated use permitting; pest identification services; plant health regulatory 

coordination; and regulatory support for enforcement of quarantines on animal products and byproducts. PPQ– PHP works with U.S. Fish and Wildlife Service (FWS) and maintains national 

program guidance to PPQ’s enforcement of plants and plant products under the Convention on 

International Trade of Endangered Species of Flora and Fauna (CITES). PPQ–PHP ensures 

science-based safeguarding systems are in place to prevent the introduction of exotic plant and 

animal pests into the United States and to support PPQ pest detection, emergency, and regulatory 

efforts.

PIM Web site:

https://www.aphis.usda.gov/planthealth/pim

 

APHIS Role in Trade

https://www.aphis.usda.gov/aphis/ourfocus/importexport/trade/ct_trade
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PPQ–PHP works in close coordination with the DHS–CBP to provide the regulatory pest 

exclusion authority and guidance for Agriculture Quarantine Inspection at U.S. ports of entry and 

border crossings. PPQ–PHP is based in Riverdale, Maryland.

Risk and Pathway Analysis

PPQ–S&T

The Plant Epidemiology and Risk Analysis Laboratory (PERAL) in PPQ–S&T collects and 

interprets scientific and technical information regarding plant pest risks with respect to the uses 

of plant products or conveyances that may result in the spread of plant pests. PERAL assists PPQ 

in designing risk- based policies and regulations for import, export, and domestic programs.

The PERAL risk and pathway analyses identify, assess, and prioritize new pest threats, provide 

scientific support for regulatory updates and revisions, and identify gaps in knowledge that guide 

the establishment of research priorities.

The program uses state-of-the-art tools and methodologies for pest and pathway risk 

assessments, including sophisticated spatial technology systems that integrate weather, pest 

distribution, and other databases to analyze pest dynamics, identify pests of greatest concern, and 

identify potential pathways for the introduction of exotic pests.

The PERAL staff also provides the economic and cost- benefit analyses to facilitate emergency 

responses. In addition to the regulatory significance and potential environmental impact, PPQ 

and its cooperators consider the potential economic impact of the pest on local, interstate, and 

international trade in developing emergency response and regulatory plans.

Development of Trade Regulations

PPQ–PM

PHP’s Imports, Regulations, and Manuals (PHP–IRM) unit develops regulations that set 

conditions for importing plants, plant products, and commodities into the United States. One of 

PPQ’s primary functions is to facilitate the two-way trade of agricultural products while 

preventing the introduction of pests into the United States. To this end, PPQ conducts rigorous 

and defensible pest risk analyses and develops regulations to support trade agreements.

The APHIS regulatory development process begins with the PHP–IRM unit, which shapes the 

initial regulation prior to sending it to the Regulatory Analysis and Development (PPD–RAD) 

unit. PHP–IRM works with PPQ’s trade staff to develop the regulations that set the conditions 

for plants and plant products to enter the United States via the negotiated trade agreements.

Additionally, PHP–IRM is responsible for updating and revising PPQ’s regulations governing 

the importation of plants for planting (7 CFR § 319.37 also known as Quarantine 37 or Q-37).

The regulatory process affords the public the opportunity to view PPQ’s risk analysis and ensure 

all pest risks have been appropriately considered and mitigated.

Plant Epidemiology and Risk Analysis Laboratory (PERAL) 

https://www.aphis.usda.gov/aphis/ourfocus/planthealth/ppq-program-overview/SA_CPHST/CT_Peral
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Permits to Safeguard Plants, Plant Products, and Other Organisms

PPQ-–PM

Permitting and Compliance Coordination (PCC) and IRM issue permits required for the 

importation, transit, domestic movement, and environmental release of organisms that impact 

plants and plant products under the authority of the Plant Protection Act (PPA). PPQ permits 

establish the conditions under which plants and plant products may enter the country and require 

inspections at ports of entry to ensure those conditions have been met.

Organism permits are required for plant pests (e.g., insects and snails), plant pathogens (fungi, 

bacteria, and viruses), biological control agents, bees, federal noxious weeds, and parasitic 

plants. Plant and plant product permits are required for plants for planting such as nursery stock 

and small seed lots, plant products such as fruits and vegetables, timber, cotton, and cut flowers.

Transit permits are required to ship regulated plant products into, through, and out of the United 

States. Soil permits are required in many cases, and Controlled Import Permits are needed to 

import prohibited plant materials for research and development. APHIS regulates these 

organisms because they can provide a pathway for the introduction of a variety of plant pestsinto 

the United States or are considered plant pests themselves. For further information, refer to the 

Permits Web site.

CBP Agriculture Quarantine Inspection

PPQ–PM 

CBP–AQI

Agriculture Quarantine Inspection (AQI), which is a series of inspection and pest-exclusion 

efforts designed to keep prohibited agricultural items from entering the country, plays a major 

role in preventing the unintentional introduction of invasive pests into the United States.

The DHS–CBP conducts agriculture quarantines and inspections on behalf of APHIS at 

international ports of entry and border crossings, to protect the United States from the threat of 

invasive pests. These activities include inspection of items such as commercial cargo, individual 

shipments, international mail, and baggage carried by passengers that could transport and 

introduce pests with the potential to cause serious damage to America’s crops, livestock, and the 

environment.

Most ports of entry convene a pest risk committee comprised of representatives from DHS–CBP, 

PPQ, the State, and other key stakeholders. The committee reviews and analyzes current pest 

interception and trade noncompliance data at the ports of entry to identify potential foreign pest 

threats and emerging risk patterns or situations. The pest risk committee’s work supports DHS–

CBP’s risk management planning, resource allocation, and risk decisionmaking; PPQ’s decisions 

regarding the policies and procedures followed by DHS–CBP at ports of entry; and the planning 

of early pest detection surveys at the State level.

Plant Organism and Soil Permits 

https://www.aphis.usda.gov/planthealth/permits
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PPQ provides DHS–CBP with the necessary AQI policies and procedures along with the 

technical support to carry out AQI activities including training; providing scientific expertise and 

regulatory authority; and identifying intercepted plant materials, pests, and diseases in a timely 

manner.

The Quarantine Policy Analysis and Support (PHP–QPAS) staff provides technical support by 

analyzing results of agricultural cargo inspections at U.S. ports of entry and the associated pest 

interception data. This information is used to develop a comprehensive early warning system and 

to identify potential pathways at high risk allowing for more focused inspection as well as traceback and trace-forward activities.

PPQ Field Operations identifiers provide local summary reports to DHS–CBP that include the 

pests detected, information regarding seasonal cargo and potential pests, and may highlight 

significant interceptions.

Plant Inspection Stations

PPQ–FO

PPQ Field Operations (PPQ–FO) manages PPQ’s plant inspection stations. Federal regulations 

require most imported plants and seeds to enter the United States through certain ports of entry 

where PPQ operates plant inspection stations for the inspection and clearance of those items.

Currently, PPQ has 16 plant inspection stations in the United States at or near major international 

airports, seaports, and land borders.

At the stations, PPQ Plant Health Safeguarding Specialists inspect imported plants and seeds to 

ensure they are free of plant pests not currently known to occur in the United States that could be 

damaging to either U.S. agriculture or natural resources. These specialists also ensure the plants 

and seeds comply with Federal import regulations and permitting requirements. When regulated 

pests or diseases are detected, PPQ may require the plants for planting material be treated, 

exported, or destroyed.

PPQ also enforces the rules and regulations that apply to the import, export, and reexport of plant 

species protected by the Endangered Species Act (ESA) and the Convention on International 

Trade in Endangered Species of Wild Fauna and Flora (CITES). Many plant inspection stations 

also issue phytosanitary certificates for the export of plants, seeds, and other propagative 

materials.

Pest Identification

PPQ–PM 

PPQ–FO

The PPQ National Identification Services (NIS) coordinates plant pest identification in support 

of the USDA’s regulatory programs. Accurate and timely identifications provide the foundation 

for quarantine decisions and are essential to safeguard the nation’s agricultural and natural 

resources. NIS employs or collaborates with scientists who specialize in identifying organisms 

within various plant pest groups including weeds, insects, mites, snails, and plant diseases. These 

scientists are stationed at various institutions around the country including Federal research and 
10/2019-01 Emergency Management Framework 19

regulatory laboratories, plant inspection stations, land-grant universities, and natural history 

museums. In addition, NIS supports the use of alternative diagnostic methods to enhance the 

speed and precision of the identification process such as the Remote Pest Identification Program, 

which utilizes digital imaging technology. Additionally, the NIS works closely with the S&T 

Beltsville Laboratory that provides molecular diagnostic and confirmatory testing services in 

support of the agency’s pest monitoring and exclusion programs.

PPQ Port Activities

PPQ–FO manages the operations of PPQ identifiers located at more than 34 ports of entry across 

the country. These identifiers include entomologists, plant pathologists, and botanists who 

provide taxonomic identification of pests detected by DHS–CBP, PPQ plant inspections stations, 

and PPQ domestic programs, and support cooperator pest detection activities. All identifiers 

maintain both a local port collection and a collection that supports their specific taxonomic 

specialty.

PPQ–FO manages PPQ work units at ports of entry around the country. These work units 

oversee fumigation treatment of material infested with quarantine pests, provide review and 

clearance of cold- treated commodities from foreign countries, provide export certification, and

monitor compliance activities.

Development of AQI and Port Technologies

PPQ–S&T

The Center for Plant Health Science and Technology (CPHST) develops agriculture quarantine 

inspection and port technology methods to provide the scientific basis for agricultural import 

inspections and treatment technologies to ensure the safety of agricultural imports. Quarantine 

inspections and mitigating treatments are the last line of defense against exotic invaders.

CPHST responsibilities include developing and validating phytosanitary treatment methods, 

including alternatives to the use of methyl bromide; supporting the development of treatment 

manuals for ports of entry; certifying vessels and containers for transporting commodities; 

certifying international commodity treatment facilities in preclearance programs; and developing 

detection technologies for deployment at ports such as chemical sensors, acoustic detectors, and 

agricultural x-ray technology

Offshore Preclearance

PPQ–PM

PHP’s Preclearance and Offshore Programs (PHP–POP) represents the first line of defense in 

preventing the unintentional introduction of invasive plant pests and diseases into the United 

States,

PPQ coordinates offshore programs, preclearance inspections, treatments, and other mitigation 

measures in foreign countries in accordance with phytosanitary procedures agreed upon by
10/2019-01 Emergency Management Framework 20

APHIS, the host country’s NPPO, and the participating industries. These procedures are 

designed to identify and mitigate the risk of exotic pest introductions on commodities through 

action taken in foreign countries prior to shipment to the U.S.

Quality assurance inspections may be performed at U.S. ports of entry to ensure compliance with 

the program guidelines.

Predeparture

PPQ–PM 

PPQ–FO

APHIS has deemed it necessary to restrict the interstate movement of cut flowers, fruits, 

vegetables, plants, and portions of plants from Hawaii, Puerto Rico, the U.S. Virgin Islands, 

Guam, and the Commonwealth of the Northern Mariana Islands to prevent the introduction of 

quarantined pests into the U.S. mainland.

Inspections are also conducted on air passengers, cargo, and mail destined for the continental 

United States (CONUS), when originating outside the continental United States (OCONUS). 

Federal personnel at predeparture locations inspect articles of agricultural risk for a variety of 

harmful pests and for prohibited products carried by passengers or moving as maritime or air 

cargo. If quarantine pests or prohibited materials are discovered during the inspection, the 

appropriate regulatory action is taken.

Mitigating Agricultural Pests in Neighboring and Offshore Countries

PPQ–PM

PPQ is working with neighboring countries to develop an international strategy designed to 

prevent or minimize the risk of accidental introductions or natural dispersal of invasive pest 

species into CONUS. Mitigating actions include the development of joint safeguarding measures 

and the sharing of expertise regarding the employment of various control tactics to eradicate or 

control the targeted pests.

Implementing mitigation measures in nearby countries not only assists their governments in 

dealing with new exotic plant pests, but also builds international partnerships and protects the 

United States from the increased risk of accidental plant pest introduction. AQI is a resourceintensive activity; thus, only a percentage of incoming cargo and passengers can be inspected. 

Therefore, AQI does not serve as a standalone prevention tool and must be used in concert with 

other measures within the safeguarding continuum such as offshore mitigation activities.

Examples of PPQ’s offshore efforts include the Asian gypsy moth program with Japan and 

Russia; working with Italian shippers on packing material; the pink hibiscus mealy bug program 

in the Caribbean; and the Potato Cyst Nematode and Greenhouse Nursery Certification program 

with Canada.

For additional information on POP: 

https://www.aphis.usda.gov/planthealth/preclearance
10/2019-01 Emergency Management Framework 21

PPQ is pursuing the North American Perimeter Approach (NAPP) and the Greater Caribbean 

Safeguarding Initiative (GCSI) to support this approach with neighboring countries.

Regulatory Cooperation Council (RCC): Perimeter Approach to Plant Protection (PAPP). Under 

the RCC Plant Protection Workplan, a reinvigoration of the North American Perimeter 

Approach, APHIS and the Canadian Food Inspection Agency (CFIA) continue to advance a 

perimeter approach to facilitating safe bilateral trade and protecting Canada and the United 

States from risks posed by plants and plant products arriving from developing countries. This 

includes aligning phytosanitary import requirements and related systems wherever possible 

working toward reducing certification and inspection requirements between the two countries.

Through several phases, APHIS and CFIA have successfully revised the Canada–U.S. 

Greenhouse Certification Program. We continue joint work to manage chrysanthemum white rust 

and are working bilaterally on postentry quarantine (PEQ) and e-certification initiatives.

Greater Caribbean Safeguarding Initiative

Plant pests entering Caribbean countries could potentially spread to the United States through the 

importation of plants and plant products or as a result of weather events. In 2006, PPQ began a 

safeguarding initiative to identify and address potential pathways for pests entering Florida from 

the Caribbean region. This pilot program increased coordination of PPQ’s efforts and initiatives 

for targeting and reducing the risk of plant pests establishing in the United States through the 

Florida pathway. In 2008, PPQ began expanded the initiative into a national program, known as 

the GCSI with the goal of protecting the health and value of agricultural, natural, and other 

resources in the greater Caribbean region by excluding, detecting, and controlling exotic pests 

that arrive and become established. This goal is accomplished through collaborative efforts 

among partners and countries in the greater Caribbean region to develop and harmonize 

exclusion and response strategies, and other safeguarding initiatives.

Smuggling Interdiction and Trade Compliance

PPQ–FO

Smuggling Interdiction and Trade Compliance (SITC) plays a major role in interdicting 

noncompliant agricultural products of regulatory significance before or after they reach U.S. 

markets. By identifying high- risk trade pathways, the SITC staff detects and prevents the 

unlawful entry and distribution of products that may harbor exotic plant and animal pests, 

diseases, or invasive species. These harmful organisms could seriously damage America’s crops, 

livestock, and environment. SITC’s mission is accomplished through a combination of field 

work (site inspections, trace-forwards, and trace-backs), trend analysis, outreach, and the use of 

intelligence tools and data systems.

SITC officers and analysts are experts in developing commercial targeting information, 

examining aspects of international trade, and identifying contraband in commerce and at the

For additional information on RCC: 

http://www.trade.gov/rcc/

Greater Caribbean Safeguarding Initiative

https://www.aphis.usda.gov/planthealth/offshore-safeguarding-activities
10/2019-01 Emergency Management Framework 22

consumer level. In the marketplace, SITC officers work under the guidance of State Plant Health 

Directors (SPHDs) to monitor agricultural trade at commerce sites. Such sites encompass freight 

distribution centers, national chain stores, specialty independent retailers, flea markets, roadside 

vendors, animal, plant, and insect trade shows, and private residences associated with the 

purchase of regulated goods on the Internet. When SITC officers find a noncompliant item at a 

commerce site, every effort is made to trace it back to the port of entry and responsible importer. 

Once the pathway is documented, SITC notifies DHS–CBP or PPQ plant inspection stations to 

help shut it down, often resulting in administrative penalties, civil or criminal prosecution, and 

product recalls to safeguard American agriculture. SITC officers also work closely with CBP at

U.S. ports of entry, both on a routine basis and during joint special operations, to carry out trade 

verifications and intercept smuggled products. SITC also partners with PPQ plant inspection 

station personnel for operations focused on plants for planting.

The SITC staff engages with many Federal, State, and local agencies to accomplish the 

program’s mission. Through such partnerships, SITC has provided other federal entities (DHS–

CBP, USDA’s Office of the Inspector General (OIG), APHIS’ Investigative and Enforcement 

Services (IES) Program, U.S. Immigration and Customs Enforcement (ICE), USDA’s Food 

Safety and Inspection Service (FSIS), U.S. Food and Drug Administration (FDA), and others) 

and State agriculture agencies with information leading to seizures, the stop-sale of products, 

criminal prosecutions, and administrative violations.

While SITC’s efforts often react to products that have already entered commerce, SITC also 

takes preventive steps to anticipate noncompliant imports before they occur, ultimately reducing 

costs to the American public through avoided eradication programs and quarantines. For 

instance, SITC officers and analysts watch for increased threats from seasonal shipping trends 

and marketplace disruptions that could signal an upswing in smuggling activity. SITC officers 

also perform extensive liaison work and outreach with industry groups and other stakeholders to 

stop noncompliant agricultural trade before it occurs.

SITC officers are flexible enough to respond to a wide breadth of agricultural threats and 

challenges, including participating in plant health emergency response programs, where they 

may be tasked with determining the entry pathway of an exotic plant pest.

Select Agent Services

APHIS

Select agents are pathogens that have been deemed a severe threat to the public, animal or plant 

health, or animal or plant products.

USDA and Health and Human Services (HHS) are responsible for preventing, preparing for, and 

responding to acts of bioterrorism and other public health emergencies that could threaten either 

public health and safety or American agriculture. USDA–APHIS and HHS’ Centers for Disease 

Control and Prevention (CDC) jointly regulate entities and individuals possessing, using, or 

transferring select agents and toxins.
10/2019-01 Emergency Management Framework 23

USDA’s Agriculture Select Agent Services (AgSAS) provides regulatory oversight to 

specifically safeguard plant pest select agents. This regulatory oversight includes inspecting 

entities for biocontainment and physical security. Entities must maintain biocontainment, 

security, and incident response plans. In addition, all individuals and private or commercial 

entities must complete a U.S. Department of Justice (DOJ) Security Risk Assessment (SRA) for 

the facility, its owners, and the designated responsible official

Facilities must also meet the biosafety requirements commensurate with the risk that a select 

agent or toxin poses. They must establish security measures that provide graded protection in 

accordance with the threat posed by the agent or toxin.

AgSAS also helps safeguard agricultural agents that have the potential to accidentally cause 

significant damage to U.S. agricultural resources. This is accomplished through APHIS permits. 

Permits are required for the importation, transit, domestic movement, and environmental release 

of organisms that impact plants, and for the importation and transit of plants and plant products.

Agriculture Select Agent Services 

https://www.selectagents.gov
10/2019-01 Emergency Management Framework 24

Chapter 4: Preparedness

Introduction

Preparedness encompasses evaluating and planning for an effective response to a plant health 

emergency, identifying the necessary resources, establishing the required infrastructure, and 

conducting training and exercises to ensure an effective and timely response. Plant Protection 

and Quarantine (PPQ) works with Federal agencies; State, Tribal, and local governments; and 

industry to prepare, build, and sustain operational capacity and capabilities including early 

detection; timely, accurate, and confirmed diagnostics; and effective containment, mitigation, 

and control strategies against plant health threats and pest introductions.

Preparedness includes the following early warning activities:

• North American Plant Protection Organization’s (NAPPO) alert system

• Smuggling and Interdiction Trade Compliance (SITC) National Information and 

Communication System (SNICAS)

• U.S. Department of Homeland Security (DHS) enforcement alerts

• U.S. Department of Agriculture (USDA) significant pest alerts

• State and university pest alerts

• Pest interception data

• European and Mediterranean Plant Protection Organization (EPPO)

• State and Federal pest detection programs (Cooperative Agricultural Pest Survey 

(CAPS), National Agricultural Pest Information System (NAPIS), National Plant 

Diagnostic Network (NPDN), State agency survey programs, the Cooperative Extension 

Service, universities, U.S. Forest Service, etc.)

• Identification and diagnostic services

• PPQ–New Pest Advisory Group (NPAG) assessments and recommendations

• New Pest Response Guidelines (NPRG)

• Formation of Incident Management Teams (IMT)

• Incident Command System (ICS) training including emergency response exercises with 

cooperators
10/2019-01 Emergency Management Framework 25

Early Warning Systems

NAPPO Phytosanitary Alert System

PPQ–S&T

The NAPPO’s Phytosanitary Alert System (PAS) is hosted in Raleigh, North Carolina at PPQ’s 

Center for Plant Health Science and Technology (PPQ–CPHST). The system adapts to the basic 

needs of the plant protection services of NAPPO’s member countries— the United States, 

Canada, and Mexico—and serves as a readily accessible, user-friendly aid to the daily operations 

of PPQ and its cooperators. The alert system gathers, on a broad international scale, crucial 

intelligence regarding pests of importance to NAPPO countries. The system then filters the data, 

repackages it to suit NAPPO’s needs, and disseminates it through the PAS Web site.

The information is derived from a variety of sources, including records from port-of-entry 

interceptions, domestic plant pest surveys, the Internet, primary literature, and user submissions. 

The most significant information is posted for the target audience, which consists of the plant 

protection services for Canada, Mexico, and the United States.

The system provides many benefits, including the following:

• Focused domestic plant pest surveys

• Port-of-entry inspections that flag specific pests and pathways

• Improved information for decisionmaking on permits, risk assessments, and regulations

• Increased lead time to prepare action plans for emergency coordination, response, and 

eradication

Refer to the NAPPO Web site for further information or to subscribe to the alerts.

European and Mediterranean Plant Protection Organization

The EPPO is an intergovernmental organization responsible for European cooperation in plant 

health. Founded in 1951 by 15 European countries, EPPO now has 50 members, covering almost 

all countries of the European and Mediterranean regions. The objectives of EPPO are to protect 

plants, develop international strategies against the introduction and spread of plant pests, and 

promote safe and effective control methods. In addition, EPPO publishes three bulletins each 

year featuring newly detected invasive plant pests in the region.

PPQ uses the information provided through EPPO to develop the following preparedness 

strategies:

• Surveys for domestic plant pests

• Inspections at ports of entry that flag specific pests and pathways

North American Plant Protection Organization Phytosanitary Alert System 

http://www.pestalert.org
10/2019-01 Emergency Management Framework 26

• Development of New Pest Response Guidelines

• Greater lead time to prepare emergency coordination and response plans 

For further information, refer to the EPPO Web site.

Pest Detection Program

PHP–PM

The goal of PPQ is to protect America’s agricultural and natural resources by ensuring the early 

detection of harmful or economically significant plant pests and weeds. A strong domestic 

agricultural pest detection system is an essential element in providing a continuum of checks 

from offshore preclearance programs, domestic port inspections, and surveys at rural and urban 

sites across the United States.

Surveys for exotic pests are accomplished under the Cooperative Agricultural Pest Survey 

(CAPS) program and Section 10007 of the 2014 Farm Bill. PPQ provides funding through 

cooperative agreements with State departments of agriculture, universities, and other appropriate 

entities.

The CAPS and Farm Bill surveys are part of a national plant pest detection system that allows 

flexibility in setting survey priorities at the national and State levels. Survey data are entered into 

the National Agricultural Pest Information System (NAPIS) database. Certain PPQ program pest 

surveys conducted with Farm Bill funding are entered into the Integrated Plant Health 

Information System (IPHIS) when applicable.

Confirmation of pests new to the United States is made via the National Identification Service 

(NIS) according to the Pest Identification Notification to States protocol posted on the APHIS 

Web site and includes simultaneous communication to the State Plant Health Directors (SPHD), 

State Plant Regulatory Officials (SPRO) of the affected State, and PPQ personnel who have a 

need to know. After the confirmed detection is entered into NAPIS by the State, the database 

generates a notification to the CAPS community on pests new to the United States. The NAPIS 

notification also includes pests new to a State and county.

For further information, refer to APHIS’s Plant Health Program (PHP) Web site.

SITC National Information Communication Activity System

The SITC SNICAS supports the mission of the Smuggling Interdiction and Trade Compliance 

(SITC) program to detect and prevent the unlawful entry and distribution of prohibited and/or 

noncompliant products that may harbor exotic plant and animal pests, diseases, or invasive 

species. SITC focuses on antismuggling and trade compliance efforts at U.S. ports of entry and 

in commerce to prevent the establishment of plant and animal pests and diseases while 

maintaining the safety of our ecosystems and natural resources. SITC uses SNICAS to perform

European and Mediterranean Plant Protection Organization 

https://www.eppo.int/index

Pest Detection Program 

https://www.aphis.usda.gov/planthealth/pest-detection
10/2019-01 Emergency Management Framework 27

legal and regulatory actions; scientific research; risk, trend, pathway, and targeting analyses; 

trade support; administrative and budgetary support; supervision and program management; and 

the overall decision support services necessary to achieve the mission.

The system contains some identifiable information regarding persons associated with the 

importation and/or interstate movement of prohibited or restricted agricultural products. This 

information assists SITC officials to identify and stop pathways used for the introduction of 

prohibited commodities and those regulated commodities that lack the necessary certificates and 

permits to enter U.S. commerce. SITC officials utilize the records to evaluate the risk status of 

the commerce sites where regulated commodities are seized. SITC officials also use SNICAS to 

generate reports to evaluate the quality control of data and effectiveness of the program.

Pest Notification–Business Process

PPQ uses the Agriculture Quarantine Activity System (AQAS) database to record program 

activities and store statistical data. This system includes the databases that capture all cargo 

import data (PPQ 280 and 264) from inspections conducted by DHS–CBP and PPQ. This system 

also captures all Emergency Action Notifications (EANs) including those written at ports of 

entry by SITC and by domestic program activities. This data is monitored by the PPQ Field 

Operations Data, Analysis, Risk, and Targeting (DART) group and PPQ–PHP analysts to 

identify trends or other key import information. Another database, PestID, captures pest

identification records. This database is continuously monitored by the Plant Health Program’s 

National Identification Services (PHP–NIS) staff for notable pest interceptions, which allows for 

a rapid response to serious import or pest detection concerns. AQAS is currently being replaced 

by a new system known as Agriculture Risk Management (ARM).

When a significant plant pest interception at the port of entry is noted in the PestID database, 

NIS staff will notify Quarantine Policy, Analysis, and Support (PHP– QPAS). QPAS will in turn 

notify the appropriate program for response. For example, QPAS will notify DHS–CBP 

Agriculture Programs and Trade Liaison (APTL) by issuing a significant pest bulletin using the 

aforementioned process.

The APTL staff members will notify their Director of Field Operations (DFO) who will 

distribute the information to his or her managers and supervisors at ports of entry. The DHS–

CBP Agriculture Specialists will receive instructions on how to conduct more intensive 

examinations to increase the chances of detecting the newly discovered significant pests in 

imported cargo shipments.

A similar process is used for notification of significant interceptions related to SITC or plant 

inspection station operations.

NIS notifies the PPQ National Survey Coordinator. The notifications are then sent to the State 

and PPQ–FO, S&T, and PM contacts.
10/2019-01 Emergency Management Framework 28

Preparedness Infrastructure

Identification and Diagnostic Services

PPQ–S&T

PPQ and its cooperators are often confronted with invasive plant pests and diseases that are new 

to the United States. The arrival of new pests presents a challenge in providing the timely and 

accurate identification and diagnostics critical to preparedness and response activities.

CPHST provides scientific development and validation of molecular diagnostic methods used in 

pest detection and management programs.

CPHST develops, adapts, and validates molecular or biochemical assays for pests for which 

there are no validated diagnostic tools available, and provides official Federal diagnostics of 

regulatory pests. Once developed and validated, these tools are used by the National 

Identification Service (PHP–NIS) and collaborating laboratories to support emergency response.

As part of preparedness, CPHST develops molecular diagnostic tools for exotic pests before 

being introduced to the Unites States. These tools are released to PPQ labs and cooperators to be 

used for regular surveys and CAPS for early pest detection.

To build PPQ’s diagnostic capacity and to help diagnosticians detect the pests in the fields and 

ports, CPHST also provides hands-on training to diagnosticians throughout the U.S.

The PHP–NIS coordinates the identification of plant pests in support of the USDA’s regulatory 

and emergency programs. Refer to Identification and Diagnostics on page 5-10 for additional 

information concerning PHP–NIS’s role.

New Pest Advisory Group

PPQ–S&T

The New Pest Advisory Group (NPAG) operates out of the Plant Epidemiology and Risk 

Analysis Laboratory (PERAL), which is part of S&T CPHST.

NPAG assesses exotic plant pests new to or not yet present in the United States, but which may 

pose a risk to U.S. agriculture or the environment and recommends appropriate actions to the 

PPQ Deputy Administrator. NPAG evaluates the significance of plant pests and their potential 

economic and environmental impacts by coordinating information sharing and soliciting 

expertise from regulatory and subject matter experts (SMEs). These experts can include Federal, 

State, and university personnel that have knowledge of the pest or pest situation. This evaluation 

consists of a brief technical report that provides key information regarding the pest, determines 

the potential economic and trade implications, and provides science-based recommendations for 

PPQ’s responds to a new plant pest or imminent threat.

NPAG can be notified of a new pest through a variety of sources such as any part of PPQ, State 

departments of agriculture, and electronic alerts. When notified, NPAG determines whether to 

analyze the pest based on its presence or absence in the United States and its quarantine status as 

a plant pest. If the pest is a routine pest and the recommendations are fairly limited in scope, the 

NPAG report is directly referred to the appropriate PPQ action leaders, such as the NIS, Pest
10/2019-01 Emergency Management Framework 29

Detection and Emergency Programs (PDEP), or others and consults with the National Plant 

Board (NPB) when providing recommendations on the types of regulatory actions to take. If the 

pest is deemed a high-consequence pest, it is presented directly to the PPQ management team, 

which includes the Deputy Administrator, who discusses it and comes to a consensus on the 

recommendations

Refer to the PPQ–NPAG Web site for further information.

New Pest Response Guidelines

PPQ–S&T

PPQ has historically developed New Pest Response Guidelines (NPRG) as a framework for 

providing methods and tools used for containing, controlling, or eradicating a known pest that is 

not yet present in the United States. NPRGs are proactively developed so regulatory personnel 

will have scientifically valid and operationally practical methods available to them to respond to 

plant health emergencies.

The purpose of an NPRG is to provide the basic information likely to be needed by the initial 

PPQ response team in the first 30 to 60 days following a pest detection in the United States.

Each NPRG contains the following information:

• Summary of relevant pest biology

• Guide to identification or screening for the pest in the field based on damage

• Preliminary method for conducting a delimiting survey

• Summary of known eradication and quarantine options

• Summary of knowledge gaps

NPRGs are based on the best information available at the time of development: in additional to 

consulting the scientific literature, the NPRG group consults with SMEs in each stage of the 

development of NPRGS. However, at the time of the emergency new scientific and technical 

information may be identified. In addition, each pest incursion has unique, site-specific 

characteristics that are impossible to predict. Therefore, NPRGs should be considered a general 

guideline only. As the pest situation evolves and new information is gathered, the response 

implemented—including survey protocols—may need to be modified from the original 

recommendations.

Pests are selected using the Objective Prioritization of Exotic Pests process, which categorizes 

pests based on their likelihood of causing serious impacts in the United States and the likelihood 

of introduction. Exotic pests that have been determined to have a high likelihood of causing 

serious impacts upon introduction are prioritized the highest. Additionally, because S&T

PPQ New Pest Advisory Group 

https://www.aphis.usda.gov/plant-health/npag
10/2019-01 Emergency Management Framework 30

develops the NPRGs for each year, the NPRG group relies on its liaisons in PHP–PDEP and FO 

to approve the planned list of pests.

Incident Command System

PPQ–PM

PPQ has four incident command teams: Alpha, Bravo, Charlie, and Delta. Since 2006, the 

members have been trained in the Incident Command System. When support is needed, the 

teams assume a lead role in coordinating an onsite response to pest detection emergencies.

Training

The ability to conduct coordinated emergency responses has new importance as reflected in the 

Homeland Security Presidential Directive 5 (HSPD-5) issued February 28, 2003. This directive 

requires all Federal departments and agencies to adopt the National Incident Management 

System (NIMS) in a domestic emergency. NIMS is designed to provide a consistent nationwide 

framework for Federal, State, and local governments. The governments use NIMS to prepare for, 

respond to, and recover from domestic incidents regardless of cause, size, or complexity. NIMS 

is based on the ICS.

The ICS is a structured management system designed to bring multiple responding agencies, 

including those from different jurisdictions, together under a single command structure when an 

incident occurs.

In keeping with NIMS–Incident Management Systems Division (IMSD) recommendations, 

APHIS–PPQ supports ICS training in its preparedness efforts. The ICS program takes a holistic 

approach toward ICS training and promotes training through local emergency management 

organizations and agency-sponsored ICS courses online and in classrooms. Acquiring ICS 

training is not mandatory; however, managers are encouraged to promote training to build 

capacity and enhance capabilities in the realm of emergency preparedness and response. The 

following are courses outlined in Federal Emergency Management Agency’s (FEMA) 

credentialing system and are used as a baseline for ICS positions within PPQ.

PPQ New Pest Response Guidelines 

https://pags.cphst.org/
10/2019-01 Emergency Management Framework 31

Basic ICS Training Courses

ICS 100 Introduction to the Incident Command System (ICS)

ICS 200 ICS for Single Resources and Initial Action Incidents

ICS 300 Intermediate ICS for Expanding Incidents

ICS 400 Advanced ICS

ICS 700 National Incident Management System, An Introduction

ICS 800 National Response Framework, An Introduction

Advanced ICS Training Courses

E/L 950 All-Hazards Incident Commander

E/L 952 All-Hazards Public Information Officer

E/L 954 All-Hazards Safety Officer

E/L 956 All-Hazards Liaison Officer

E/L 958 All-Hazards Operations Section Chief

E/L 960 All-Hazards Division/Group Supervisor

E/L 962 All-Hazards Planning Section Chief

E/L 964 All-Hazards Situation Unit Leader

E/L 965 All-Hazards Resources Unit Leader

E/L 967 All-Hazards Logistics Section Chief

E/L 969 All-Hazards Communication Unit Leader

E/L 970 All-Hazards Supply Unit Leader

E/L 971 All-Hazards Facilities Unit Leader

E/L 973 All-Hazards Finance/Admin Chief

E/L 975 All-Hazards Finance/Admin Unit Leader

S 420 Command and General Staff

L 480 Organizational Leadership

PPQ Multiyear Training & Exercise Program

Exercises allow emergency management personnel, from first responders to senior officials, to 

train and practice pest exclusion, protection, response, and recovery capabilities in a realistic but 

risk-free environment. Exercises are also valuable for assessing and improving performance, 

while demonstrating community resolve to prepare for major incidents.

PPQ follows the tenets of the Homeland Security Exercise and Evaluation Program (HSEEP), a 

capabilities- and performance-based exercise program. The intent of HSEEP is to provide 

common exercise policy and program guidance capable of instituting a national standard for all 

exercises. HSEEP reflects lessons learned and best practices of existing exercise programs and 

can be adapted to a variety of scenarios and events (e.g., natural disasters, terrorism, and 

technological disasters). PPQ is compliant with the following specific performance requirements:

• Conduct an annual training and exercise planning workshop and maintain a multiyear 

training and exercise plan

• Plan and conduct exercises in accordance with the guidelines set forth by HSEEP policy

• Develop and submit a properly formatted After Action Report/ Improvement Plan 

(AAR/IP)

• Track and implement corrective actions identified in the AAR/IP
10/2019-01 Emergency Management Framework 32

The multiyear training and exercise plan identifies an entity’s priorities as articulated in the 

entity’s strategy and identifies the capabilities that are most relevant to achieving those priorities. 

The plan then outlines a multiyear schedule of training and exercises that an entity will undertake 

to enhance and validate its capabilities. It also graphically illustrates a multiyear schedule for 

training and exercise activities to support these priorities. A multiyear plan employs a buildingblock approach in which training and exercise activities focus on specific capabilities in the 

following cycle of increasing complexity:

• Seminar: an informal discussion designed to orient participants to new or updated plans, 

policies, or procedures

• Workshop: resembles a seminar but is employed to build specific products such as a draft 

plan or policy

• Tabletop exercise: involves key personnel discussing simulated scenarios in an informal 

setting; tabletop exercises can be used to assess plans, policies, and procedures

• Games: a simulation of operations that often involves two or more teams, usually in a 

competitive environment, using rules, data, and procedures designed to depict an actual 

or assumed real-life situation

• Drill: a coordinated, supervised activity usually employed to test a single specific 

operation or function within a single entity

• Functional exercise: examines or validates the coordination, command, and control 

between various multi-agency coordination centers; a functional exercise does not 

involve any boots on the ground

• Full-scale exercises: multiagency, multijurisdictional, multidiscipline exercises involving 

functional and boots-on-the-ground responses

The PPQ Professional Development Center (PPQ–PDC) employees design and facilitate fullscale exercises for responders from PPQ and other Federal, State, local, and Tribal authorities. 

These exercises typically last from 1 to 3 days and provide the opportunity to improve 

capabilities in responding to plant pest and all-hazard emergencies. These exercises emphasize 

both strategic and practical skills and provide an opportunity to execute plans, procedures, and 

cooperative agreements.

PPQ and cooperators implement an assortment of discussion and operations exercises annually. 

The exercises are planned with built-in flexibility to allow updates to drive the activity. Each 

exercise consists of the following major components:

• Scenario simulating an outbreak of a plant pest or weed

• Simulations focused on communicating with the public and addressing problems arising 

during the response

• Evaluation, lessons learned, and a report written to identify strengths and weaknesses
10/2019-01 Emergency Management Framework 33

National Incident Management System 

https://www.fema.gov/national-incident-management-system

USDA Agricultural Leaving (Aglearn) 

https://aglearn.usda.gov/
10/2019-01 Emergency Management Framework 34

Chapter 5: Response

Introduction

Emergency response involves those activities that occur immediately after a plant health 

emergency has been declared. The Animal and Plant Health Inspection Service, Plant Protection 

and Quarantine (APHIS–PPQ) works with Federal agencies, State, Tribal, and local 

governments, industry, and other stakeholders to implement coordinated emergency responses. 

Ultimately, a well- coordinated response must include the aforementioned parties working 

together to contain, control, mitigate, or eradicate the pests and diseases that caused the 

emergency.

PPQ uses the Incident Command System (ICS), which provides responding agencies and entities 

with a unified strategy for working together in response to plant health emergencies. In

consultation with the PPQ Deputy Administrator’s Office, the Policy Management Staff (PPQ–

PM) leads national coordination for policy and regulatory framework formulation for plant 

health emergency response activities. In doing so, PPQ–PM works closely with PPQ’s Science 

and Technology (PPQ–S&T), PPQ’s Field Operations (PPQ–FO), and State departments of 

agriculture.

PPQ–PM, PPQ’s Plant Health Programs (PPQ–PHP), the National Plant Board (NPB), and the 

Phytosanitary Issues Management (PIM) staffs work together to develop regulations and address 

impacts on international trade; the PPQ–FO staff provides operational support and information. 

PPQ–S&T develops and delivers science-based information, methods, and protocols that provide 

a scientific foundation for response efforts.

PPQ responses include the following:

• Authorities

• Communication and outreach

• Rapid detection and delimiting surveys

• Scientific guidance from a Technical Working Group (TWG)

• Identification and diagnostics

• Emergency funding

• Mobilization

• National Incident Management System (NIMS) implementation

• Single incident command and unified command

• Data management

• Emergency coordination

• Emergency situation reporting
10/2019-01 Emergency Management Framework 35

• Regulatory framework

• Environmental monitoring

• Pest mitigation strategies

Authorities

Plant Protection Act

The Plant Protection Act of 2000 (PPA) provides the authority for the Secretary of Agriculture to 

prevent the introduction or spread of a plant pest or noxious weed. Section 414 provides the 

authority to take emergency action to seize, quarantine, treat, or destroy articles or products 

related to plant pests new to or not known to be widely prevalent in the United States. Section 

415 provides the authority for the Secretary of Agriculture to declare an extraordinary 

emergency.

This act provides the authority to regulate the movement of plant pests and their carriers into or 

through the United States and to take emergency measures pending promulgation of quarantines 

and regulations.

This authority incorporates provisions of older statutes that were repealed, including the Federal 

Plant Pest Act, most of the Federal Noxious Weed Act, and the Golden Nematode Act.

The PPA provides the authorities that support emergency response. The PPA, codified in Federal 

regulations, provides the foundation for flexible but effective programs for protecting the United 

States against threatening pests and to promulgate or modify existing regulations wherever 

necessary.

As the PPA relates to emergency response programs, it provides the U.S. Secretary of 

Agriculture with the authority to do the following:

• Establish or modify quarantines and regulations as necessary to carry out programs 

against new plant pests that become established in the United States

• Restrict and prohibit the entry and interstate movement of plants and plant products to 

prevent the entry and interstate spread of plant pests

• Declare an extraordinary emergency when a new economically significant plant pest is 

present in the United States whose presence threatens the agriculture of the United States 

and State measures are deemed inadequate

• Cooperate with States, farmers, associations, and other countries to carry out operations 

to control or eradicate pests that pose a significant economic hazard or threaten the 

United States
10/2019-01 Emergency Management Framework 36

State Authorities

State authorities are often complimentary to Federal authorities and may in some instances grant 

more liberal access to properties and conveyances that need to be surveyed, inspected, or treated. 

Cooperation between State and Federal entities and utilizing the complimentary authorities in an 

efficient manner can lessen the impact on regulated parties and the public and preserve and 

enhance the public trust in regulatory responses to plant health emergencies.

Declaration of Emergency

When it is necessary to secure funding beyond what is available in contingency funds for an 

emergency, a Declaration of Emergency is issued by the U.S. Secretary of Agriculture to request 

a transfer of Commodity Credit Corporation (CCC) funds or other U.S. Department of 

Agriculture (USDA) funds to APHIS for a specific PPQ program activity.

The declaration may be issued in conjunction with regulations (e.g., an interim or proposed rule 

to contain plant pests). A Declaration of Emergency may also be declared at the State level by 

the Governor, head of the State department of agriculture, or other appropriate governmental 

official to allow for emergency funding and emergency regulation enactment.

Declaration of Extraordinary Emergency

A Declaration of Extraordinary Emergency is issued by the U.S. Secretary of Agriculture and 

provides PPQ the authority to conduct survey and eradication measures, control the movement of 

regulated articles within a State, and/or pay compensation, at the Secretary’s discretion, for 

economic losses caused by an action of the Secretary. It also gives PPQ the authority to 

quarantine part of a State. A Declaration of Extraordinary Emergency is undertaken by the 

Secretary only after review and consultation with the Governor of the affected State or 

appropriate State officials after finding that the measures taken by the State are inadequate to 

eradicate the pest or noxious weed.

A Declaration of Extraordinary Emergency must be published in the Federal Register. If 

necessary, subsequent Federal Register notices are used to publish an interim, proposed, or final 

rule.

Communication and Outreach

PPQ–ODA

Communication and outreach are central to an effective plant health emergency response. During 

an incident, PPQ must communicate promptly and accurately. We must also reach many 

different audiences with information specific to their interests and needs. This section provides 

direction for developing an emergency response communications plan.

Assembling the Emergency Response Communications Team

The job of the Emergency Response Communications Team is to create and execute the 

emergency response communications plan. You need several different people to handle 

communications during an incident and each person has an important role to play. The team 

typically includes representatives from:
10/2019-01 Emergency Management Framework 37

Team Member Primary Role

Policy Management (PM) Communicate with affected industry groups and associations at the 

national level; lead communications with NPB and other Federal 

agencies

Science and Technology 

(S&T)

Coordinate communication with universities, researchers, and 

extension

Field Operations (FO) Coordinate communication with PPQ field offices, State Plant 

Regulatory Officials (SPROs), local industry contacts, and

productions/growers in impacted areas

Phytosanitary Issues 

Management (PIM)

Coordinate communication with foreign trading partners, the World 

Trade Organization, and regional and international plant health 

organizations

PPQ Communication Team Develop communications plan, draft messaging, and direct and 

manage communications activities

Legislative and Public Affairs 

(LPA)

Lead communications with media, general public, Congressional 

representatives and their staffs, and elected and local officials

Identifying Audiences and Their Information Needs

After you have assembled your team, the next step is to identify all potential audiences and 

determine their information needs.

Potential audiences and their specific information needs may include:

Audience Specific Information Needs

Various groups within PPQ and APHIS How is PPQ responding? What do I need to do?

National Plant Board (NPB) How is PPQ responding? What is the impact to 

States? What do SPROs need to do?

National Association of State Departments of 

Agriculture (NASDA)

What is the impact to States? What do States 

need to do?

Communications Officers of State departments of 

agriculture

What information can we share? How can we help 

get the word out?

Impacted or affected industry groups and 

associations

What is the impact to production and trade? What 

steps should growers take to control or eradicate

the pest/disease?

Producers/growers in impacted areas What is the impact to production or exports? What 

steps should growers take to control or eradicate 

the pest/disease?

Other Federal or State agencies What role might other Federal/State agencies 

play?

Foreign trading partners What is the impact? What is the U.S. 

government/U.S. industry doing to control the 

pest/disease and prevent its spread to other

countries?

Congressional representatives What is the impact to agriculture and the U.S.

economy? What can be done to minimize harm?

Elected and local officials What is the impact to my district? What can be 

done to minimize harm?

Media What is the impact? Who is involved? What is 

being done to minimize harm?

General public in affected areas What is the impact? Who is involved? What is 

being done to minimize harm?
10/2019-01 Emergency Management Framework 38

Developing the Message

At the outset of an emergency plant health situation, you should work quickly to gather as much 

information as possible about the pest’s biology and its potential to cause damage, its regulatory 

status and importance, the location and extent of the outbreak, potential response strategies, and 

potential economic impacts and trade implications. Use that information to draft audiencespecific messages. Try to keep your statements short and use plain language. If possible, avoid 

acronyms, jargon, and unnecessarily technical terms.

An important goal of an emergency response communications plan is to establish core messaging 

consistent throughout the life cycle of the emergency response. Core messaging should 

emphasize how PPQ will work with Federal, State, and industry partners to respond in the least 

restrictive but most effective manner, based on science and an assessment of risk. Core 

messaging is very important because you may have limited details to share at the outset about the 

plant health emergency or the actions we will take. As new details about the plant health 

emergency become available, you will add that information to your core messaging.

Determining the Order and Frequency of Communications

An important goal of an emergency response communications plan is to coordinate the release of 

information. This involves making decisions about the order in which you will release 

information to your various audiences. You will also have to determine how often each audience 

will need to hear from you. During most emergency plant health situations, we first share 

information internally and then with our State and Federal partners before we reach out to 

industry and beyond.

General public

and media

Industry

State and

federal partners

Internal

audiences
10/2019-01 Emergency Management Framework 39

That said, there are situations where you may need to communicate with multiple audiences at 

the same time. You may also need to engage State, Federal, or industry partners early in the 

process so they cannot only provide input into the response strategy but also help deliver 

information to key audiences.

Use a table to help determine and track the order and frequency of your communication activities 

(example below):

Date/time Activity Message Person 

responsible

Method of 

communication

Determining the Method of Communication

PPQ has a number of tools you can use to communicate with your audiences. It is important to 

select the method best suited to each situation.

In-person meeting Share sensitive or confidential information in a small group setting with 

government officials and impacted industries

Conference call Share information and coordinate activities with employees and partners in 

multiple locations; this method is well suited for sharing sensitive information you 

are not ready to put in writing

Field talking points Basic information PPQ and State field surveyors and extension agents can use to 

explain the situation and survey activities without causing needless alarm or

potential export market closures

Shared talking 

points

Key messages PPQ shares with States, extension, and, if applicable, industry 

groups, helping to ensure we all convey the same accurate information presented 

in a way that minimizes needless alarm and disruptions to domestic and 

international trade

SPRO letter Communicate policy decisions (i.e., establishing a quarantine, issuing a Federal 

Order, etc.) to SPROs

North American 

Plant Protection 

Organization

(NAPPO) alert

Notify trading partners about a new pest/disease detection

World Trade 

Organization 

notice

Notify trading partners about a new pest/disease detection

Stakeholder 

announcement

Communicate information broadly to stakeholders, the media, and the general 

public

Press release Communicate information broadly to stakeholders, the media, and the general 

public

Rapid Detection and Delimiting Surveys

PPQ–FO 

PPQ–S&T

Rapid detection and delimiting surveys are essential and implemented at the onset of the 

response. Survey data are necessary for the overall response strategy, including the ability to 

contain, control, and eradicate the pest.

The PPQ field staff under the oversight of the State Plant Health Director (SPHD) along with the 

State cooperators under the direction of the SPRO play primary roles in conducting pest survey 

activities within every State. PPQ–S&T provides technical support and demonstrated methods to
10/2019-01 Emergency Management Framework 40

PPQ field survey operations for the rapid detection of exotic pests. S&T works with PM and FO 

to develop survey plans designed to assist responder in delimiting the distribution of the pest or 

disease.

In addition to providing the overall strategy, the survey plan includes a description of the survey 

methods (random, targeted, etc.) and the appropriate tools (trap and pheromone types, scouting, 

netting, etc.), the geographical area, number of samples to be collected, and the host range to be 

surveyed.

Technical Working Group

PPQ–S&T

PPQ and cooperators are often confronted with questions of how best to respond to the 

unanticipated challenges presented by the first introduction of an invasive plant pest and disease 

in the United States. The guidance of a TWG, an ad hoc group of subject matter experts (SMEs), 

may be needed to provide PPQ with timely technical information regarding the particular pest or 

disease to which the response is being mounted. The TWG considers scientific input from a 

variety of different scientific sources and the TWG leadership within the Center for plant Health 

Science and Technology (CPHST) compiles and synthesizes the information.

Once the need is identified, the core functional areas (CFAs) work together to craft questions to 

present to the scientist on the TWG through S&T. PPQ–S&T then organizes a group of experts 

to discuss and address the questions of science. TWG membership, may consists of scientific 

experts from Federal and State agencies, universities, the private sector, and international 

organizations.

The TWG chair is to ensure coherent and relevant information is captured.

Identification and Diagnostics

PPQ–PM

Timely and accurate pest identification is fundamental to the success of an emergency response.

The PPQ National Identification Service (PPQ–NIS) staff coordinates the identification of plant 

pests in support of the USDA’s regulatory programs. Accurate and timely identifications provide 

the foundation for quarantine decisions and are essential in the effort to safeguard the nation’s 

agricultural and natural resources.

The core foundation of NIS is its network and collaboration of national taxonomists and 

identification specialists in order to provide timely identifications of submitted specimens. These

scientists who specialize in various plant pest groups including weeds, insects, mites, snails, and 

plant diseases are located throughout the country and are part of different institutions such as 

Federal and State laboratories, plant inspection stations, land-grant universities, and natural 

history museums. Some of the specific locations of these national specialists include the CPHST 

Beltsville and Mission Laboratories, the Systematic Entomology Laboratory (SEL) at the 

Smithsonian Institution, the Systematic Nematology Laboratory (SNL), the Systematic Botany 

and Mycology Laboratory (SBML), and the National Plant Diagnostic Network (NDPN).

Because of the logistical complexity of networking for all of the national specialists, NIS acts as
10/2019-01 Emergency Management Framework 41

a clearinghouse for pest identification by routing specimens to the appropriate laboratories 

ensuring timely response.

For additional information, refer to the National Identification Services Web site.

Emergency Funding

PPQ–ODA

The success of plant health emergency response often depends on obtaining additional resources. 

Funding needs for plant health emergency response are identified through field operations PPQ–

Resource Management and Planning Services (PPQ–RMPS), and the impacted States. Several 

potential funding options are available for emergency events including the following:

• Congressional supplemental funding

• APHIS contingency funds

• CCC funding

• Reprogramming

• State funding

• Other Federal agencies

• Farm Bill Section 10007

Congressional Supplemental Funding

Congressional supplemental funds are in addition to regular appropriated funding and address 

unanticipated national circumstances such as avian influenza. These funds have restricted use 

and are available for a limited time.

APHIS Contingency Funds

APHIS’s contingency funds consist of no-year money annually appropriated through Congress.

This money reverts back to APHIS if not used. The approval process for these funds is

straightforward, requiring review by APHIS’ Policy and Program Development (APHIS–PPD), 

the approval of the administrator and the undersecretary of marketing and regulatory programs, 

and final review by the USDA’s Office of Budget and Program Analysis (OBPA). The process 

requires approximately 2 months for completion once PPQ submits a budget request to APHIS–

PPD. The level of funding is approximately $4 million each year.

Commodity Credit Corporation (CCC) Funding

Authority is delegated to the Secretary of Agriculture to declare an agricultural emergency. A 

request is made based on a compilation of operational and individual program needs. The request 

is reviewed by APHIS–PPD and the USDA–OBPA and then sent to the U.S. Office of 

Management and Budget (OMB) for final approval. The process takes from 2 to 6 months, and 

the funding is no-year, meaning that it can be carried over and will remain in the program.

PPQ–National Identification Services 

https://www.aphis.usda.gov/plant-health/pest-id
10/2019-01 Emergency Management Framework 42

Reprogramming

Reprogramming refers to funding already available within APHIS programs. Amounts exceeding

$500,000 require Congressional approval and must first be recognized as available from the 

program to which they were appropriated by Congress. Once PPQ and APHIS management 

agrees to this course of action, a formal reprogramming letter is prepared by Policy and Program 

Development (APHIS–PPD). The letter then moves to USDA–OBPA, OMB, and finally to 

Congress for a decision. Congress usually renders a decision within 15 days of receipt of the 

request.

All emergency funding requests are coordinated through the PPQ–RMPS financial management 

section located in Riverdale, Maryland.

Discretionary funds are also available at PPQ–FO and PPQ–PM levels for an initial emergency 

response. The expectation is that PPQ–FO has the authority to initiate spending within its 

discretion up to $50,000 from available resources for quick action in response to a plant health 

emergency event. This funding is from existing allocations, not new money.

State Funding

Often States contribute their own resources to add to the Federal funds provided. The mechanism 

to provide these funds at the State level vary from State to State; thus, the amount provided also 

varies.

Farm Bill Section 10007

The Farm Bill Section 10007, National Clean Plant Network and the Plant Pest and Disease 

Management and Disaster Prevention Program, authorizes the Secretary to provide funding to 

enhance mitigation capabilities, for an appropriate short-term course of action to quickly mitigate 

a new detection of a pest of potential regulatory significance and to utilize PPQ’s initial response 

protocols for the overarching goals of containment, control, or eradication at the onset of a plant 

health emergency.

Mobilization

PPQ–FO

Mobilization refers to the processes and procedures used by PPQ and its cooperators to activate, 

assemble, and transport the resources necessary for successful emergency response, which 

includes both equipment and personnel.

Depending on the size and scope of the plant health emergency, the State and PPQ local 

resources may be sufficient for adequate response. The SPRO and SPHD or their designees form 

a unified command structure to manage the response, including coordinating the resource 

mobilization.

If the emergency requires resources beyond those available within the State in which the 

emergency has occurred, the incident commanders in a unified command structure would request 

additional resources through the National Field Operations Manager (NOM) for Emergency 

Preparedness and Response. The NOM would work collectively with policy managers and the
10/2019-01 Emergency Management Framework 43

APHIS dispatch to solicit, select, and coordinate mobilizing additional resources to the 

emergency site.

During this process, the APHIS dispatcher utilizes the Employee Qualification System (EQS) to 

assist with selecting the most qualified individual to send to the incident.

If the required resources surpass those available across PPQ–FO, the National Emergency 

Program (EPC) coordinator in Riverdale, Maryland would pursue securing additional resources 

from other APHIS programs, Customs and Border Protection (DHS–CBP), or other Federal 

agencies such as the Agricultural Marketing Service (AMS), Agricultural Research Service 

(ARS), Cooperative State Research, Education, and Extension Service (CSREES); the National 

Institute for Food and Agriculture (NIFA), or the Department of Defense (DOD).

For large complex emergencies, the incident commanders in a unified command structure may 

request the assistance of a PPQ National Incident Management Team (NIMT). The National 

Field Operations Manager for Emergency Preparedness and Response and policy managers work 

with the on-call incident commanders of the NIMT to decide whether the entire team should be 

deployed. NIMT members are available to respond to emergencies within 24 to 48 hours of 

notification. 

Emergency Coordination

PPQ–FO

PPQ works with Federal agencies; State, Tribal, and local governments; academia; and industries 

to implement coordinated actions designed to contain, control, and eradicate plant pests and 

diseases. Under the ICS, command may be single (incident commander), or unified (incident 

commanders) with command personnel from different agencies or jurisdictions who share 

authority for the incident. The SPHD and SPRO provide the leadership and local coordination 

for plant health emergencies through the unified command structure.

Incident Command

PPQ–FO

PPQ and State cooperators have historically demonstrated a consistent, innate ability to respond 

quickly to plant health emergencies.

The ability to conduct coordinated responses to large emergencies has taken on new importance 

as reflected in the Homeland Security Presidential Directive 5 (HSPD-5) issued February 28, 

2003. This directive requires all Federal departments and agencies to adopt the National Incident 

Management System (NIMS) in their domestic emergency management.

At the center of NIMS is the ICS, a structural type of management system designed to bring 

multiple responding Federal, State, and local jurisdictions together under a single overall 

command structure when an incident occurs.
10/2019-01 Emergency Management Framework 44

The ICS offers a scalable response to an emergency (incident) of any magnitude and provides a 

common framework within which people can work together. The system is designed to grow and 

shrink along with the incident, allowing more resources to be smoothly added into the system 

when needed and released when no longer necessary.

In keeping with ICS operating principles, PPQ’s response to any emergency is focused on 

supporting the local needs of the SPHD and SPRO together with the incident commanders 

working in the unified command structure. When the local jurisdiction requests additional 

assistance, PPQ works cooperatively with its local, State and Federal cooperators and private 

entities to develop and implement a joint incident action plan under the unified command 

structure.

The incident commanders may request the assistance of a NIMT for large or complex 

emergencies. The National Field Operations Manager for Emergency Preparedness and 

Response and policy managers work with the on-call NIMT incident commanders to decide 

whether the entire team should be deployed. Four NIMTs have members available to respond to 

emergencies within 24 to 48 hours of notification.

For further information, refer to the APHIS Mobilization Guide and PPQ Emergency Programs 

Manual.

Unified Command

The incident commanders in the unified command structure are responsible for the overall 

management of the plant health emergency at the local or State level; the development and 

implementation of the daily incident objectives and strategy; and for approval of the ordering and 

release of resources. In keeping with ICS operating principles, PPQ’s response to any emergency 

is focused on supporting the local needs of the SPHD and SPRO working together as the unified 

command.

When the local jurisdiction requests additional assistance, PPQ works cooperatively with its 

local, State, and Federal cooperators and private entities to develop and implement a joint 

incident action plan under the unified command structure.

The unified command is comprised of more than one State or Federal agency. The incident 

commanders in a unified command structure report back to their respective agencies. Depending 

on the situation, the incident commanders could report to the area command, Raleigh, NC, or 

Fort Collins, CO offices, the State department of agriculture, and the respective participating 

agencies.

For larger, more complex responses, or for responses requiring multiple incident command posts, 

an area command may be established. Incident commanders in a unified command structure 

report to the area command. The command staff (information, liaison, safety, and intelligence 

officers) and general staff (operations, planning, logistics, and finance/administration chiefs) 

report to the incident commanders in a unified command structure.

PPQ Emergency Programs Manual

https://www.aphis.usda.gov/import_export/plants/manuals/emergency/downloads/epm.pdf
10/2019-01 Emergency Management Framework 45

Direct tactical and operational responsibility for the conduct of incident management activities 

rests with the on-scene incident commanders. For further information, refer to the PPQ 

Emergency Programs Manual.

Area Command

The purpose of an area command is to oversee the management of a large or complex regional 

incident and coordinate the allocation of resources in support of the incident and the unified 

command. Typically, incident commanders in a unified command structure (Federal and State) 

report to the area command. If an area command is absent, they report to Raleigh, NC or Fort 

Collins, CO offices or the SPRO and SPHD of the affected State.

PPQ’s field operations provides area command support for the States identified in the Field

Operations Organizational Chart.

(https://www.aphis.usda.gov/plant_health/downloads/orgcharts/fieldoperations.pdf).

Multiagency Coordination

Multiagency Coordination (MAC) coordinates agencies at the State, regional, or national level. 

The purpose of MAC is to oversee and coordinate groups of agencies in response to plant health 

emergencies of national significance.

Typically, MAC consists of Federal, State, and principals from other organizations with direct 

incident management responsibilities or with significant incident management support or 

resource responsibilities. These entities may facilitate incident management and policy 

coordination.

PPQ–PM provides national leadership and coordination to the MAC for plant health emergencies 

of national significance, including the following:

• Ensuring each involved agency is providing situation and resource status

• Establishing priorities between incidents and area commands in concert with the single 

incident command or unified command structures

• Acquiring and allocating resources required by incident management personnel

• Coordinating and identifying future resource requirements

• Coordinating and resolving policy issues

• Providing strategic coordination

Data Management

PPQ–ODA

The response to a plant health emergency involves the collection of detection, survey, control, 

treatment, and regulatory information in the affected area; adequate and timely identification of 

the plant pest or disease; and coordination of the appropriate emergency response to contain, 

control, and eradicate the pest or disease. Central to successful emergency coordination is the 

timely communication of information to responders and stakeholders throughout the process.

PPQ Emergency Programs Manual

https://www.aphis.usda.gov/import_export/plants/manuals/emergency/downloads/epm.pdf
10/2019-01 Emergency Management Framework 46

Accurate data collection, data analysis, and timely access to information are the foundation of the 

decision support processes used to manage plant health emergencies. A data management system 

designed to provide timely data collection, storage, integration, analysis, and reporting is also 

fundamental to managing plant health emergencies.

Integrated Plant Health Information System

PPQ uses the Integrated Plant Health Information System (IPHIS) to meet its domestic 

regulatory information management and reporting needs. IPHIS is a single data management 

system that enhances PPQ and cooperators’ ability to coordinate and respond to plant 

pest/disease outbreaks, to minimize impacts from pests already established in the country, and 

demonstrate to trading partners that agricultural commodities meet export requirements. IPHIS is 

designed to provide a secure, Web-based application for all regulatory plant pest detection 

agricultural activities.

IPHIS provides an environment for gathering quality information from PPQ’s core regulatory 

functions survey, regulatory, diagnostics, and control. It incorporates the relational data utilizing 

advanced mobile, database, and geographic information technologies. IPHIS leverages the data 

and makes the information available to key regulatory partners and stakeholders. New 

functionalities are built into the system based on user feedback. IPHIS also shares information 

with PPQ’s agricultural quarantine activity systems.

PPQ also utilizes eTrap, Roam, and collector for ArcGIS (ESRI Collector). 

Visit the APHIS Web site for more information.

Data Management Resources

In addition to IPHIS, PPQ has Data Management Resources (DMR) that, upon request to Field 

Operation’s Data Management and Data Analysis Risk and Targeting (DART) staff, will provide 

on-site data support during plant health emergencies. The DMR becomes an integral part of the 

incident command infrastructure at the outset and during the early planning phase. Depending on 

the size and scope of the plant health emergency, the DMR are provided to ensure the correct 

data are collected using the appropriate tools and formats for a successful response. When the 

ICS is used, Data Management Resources (DMR) report to the planning section of the command 

and general staff. Resources requested may include specialists in data management, information 

technology, and Geographic Information Systems (GIS). In addition, FO has DMR and GIS 

specialists with national coverage areas to integrate and assist the incident command system.

Data management specialists provide the following:

• Coordinates and supports on-site data management for the emergency

• Identifies the data requirements (elements, collection, integration, analysis, evaluation, 

and reporting) necessary for an effective response to the plant health emergency

• Works with NOM and other working group members to design the survey template

Integrated Plant Health Information System 

https://www.aphis.usda.gov/planthealth/iphis-info
10/2019-01 Emergency Management Framework 47

Information technology specialists provide the following:

• Assembles on-site hardware, software, connectivity, and networks necessary to support 

the overall data management function

GIS specialists provide the following:

• Supports on-site GIS data integration and geospatial analysis of the data associated with 

the emergency response

Emergency Management Incident Situation Reports

PPQ–FO

Central to successful emergency coordination is timely communication of information to 

responding agencies, other Federal and State cooperators, stakeholders, and trading partners. 

Potential reports include:

• Incident action plan

• Incident situation

• Weekly situation

• Monthly summary

Incident Action Plan

For each operational period, the incident commanders in the unified command generate an 

incident action plan as soon as response activities begin. The plan formally documents incident 

objectives and the response strategy defined by the incident command and general staff during 

the response planning. The plan includes general strategies and tactics intended to achieve 

specific goals and objectives as well as facilitating the dissemination of critical information 

regarding response efforts. The plan is distributed to individuals directly involved with the 

emergency, including the command and general staff, FO, and national emergency response 

coordinators.

Incident Situation Report

Depending on the scope of the emergency, the incident command and general staff may be 

requested to submit an incident situation report. In addition to information in the daily incident 

action plan, the incident situation report includes survey and diagnostics, trace-back and traceforward information, treatment information, and regulatory activities. This report, which is 

distributed on a need-to-know basis, also includes information of national significance such as 

trade, communication and outreach, technical, economic, and other biological and ecological 

information regarding the pest or disease.

Weekly Situation Report

This report replaces the incident situation report as information becomes less fluid and timely 

information can be provided weekly as determined by the MAC, area command, and unified 

command. The weekly report summarizes the pest status, regulatory activities, and results 

associated with the response.
10/2019-01 Emergency Management Framework 48

Monthly Situation Report

This report replaces the daily and weekly situation reports as program activities become routine 

and when the MAC, area command, and unified command determine updates can be provided on 

a monthly basis. The monthly report includes a summary information regarding the pest status, 

regulatory activities, and long-term results associated with the response.

Regulatory Framework

PPQ–PM

The USDA is responsible for protecting plants and safeguarding American agriculture. The Plant 

Protection Act of 2000 (PPA) provides the USDA with the authority to regulate the movement of 

organisms that may pose a threat to agriculture into or within the United States. The PPA also 

provides the USDA with the authority to prevent the introduction, dissemination, or 

establishment of such organisms. APHIS–PPQ is the lead Federal agency providing safeguards 

against exotic plant pests threatening agriculture and natural systems.

The domestic regulatory framework is developed in collaboration with the affected State plant 

regulatory agencies. When less than the entire State is quarantined, both the Federal and State 

quarantine must, at minimum, be in parallel.

PPQ can exercise one or more of the following regulatory options in an effort to prevent the 

spread of plant pests and diseases of regulatory significance:

• Emergency Action Notification (EAN)

• Federal Order (FO)

• Interim rules

• Proposed and final rules

Emergency Action Notification

The EAN is a document issued by a PPQ inspector to notify an owner or agent of carrier, 

premises, and/or articles to apply specific remedial measures to prevent the potential spread of a 

plant pest or disease. An EAN can be used when dealing with a relatively small number of 

regulated entities.

Federal Order

Federal Quarantine Orders (FQO) or Federal Orders are issued by PPQ with the approval of

USDA’s Office of General Counsel (OGC). An FQO is used to stop or regulate the movement of 

articles from a defined geographical area to prevent the spread of plant pests and diseases. AN 

FQO can also be used to announce that a host will be regulated, expand existing quarantine 

regulations, or add to host lists under existing quarantine regulations. SPRO letters are used to

transmit information regarding FQO’s, program and regulatory updates, and the detection of new 

pests in addition to providing program and regulatory updates and detecting new pests.

PPQ Emergency Response Manual

https://www.aphis.usda.gov/import_export/plants/manuals/emergency/downloads/epm.pdf
10/2019-01 Emergency Management Framework 49

Interim Rules

The interim rules are used to establish a new quarantine in the Code of Federal Regulations 

(CFRs) on an emergency basis or when prior public comment is not in the best interest of the 

public. Interim rules are issued by APHIS with OGC, departmental, and OMB review.

Proposed and Final Rules

These rules are used for the long-term regulatory requirements or maintenance of ongoing 

programs. These rules can also be used to approve new treatments or protocols for interstate 

movement of regulated articles under existing regulations.

APHIS issues proposed and final rules with OGC, USDA, and OMB review or clearance. The 

PPQ–PHP–Imports, Regulations, and Manuals (PHP– IRM) provides support and guidance to 

PPQ policy managers in selecting the most appropriate regulatory option based on the 

circumstances of the pest outbreak.

PPQ’s PHP–IRM staff interfaces with the regulations writers in APHIS–PPD, USDA–OGC, 

OMB, and others involved in regulatory decision making to facilitate the development and 

codification of regulatory initiatives.

Protection of Human Health and the Environment

PPD–ERAS

A response to a plant health emergency situation may require the use of chemical control or 

some other eradication tools. Whenever such control techniques are proposed, several Federal 

laws must be considered prior to the initiation of the activity:

• Federal Insecticide, Fungicide, and Rodenticide Act (FIFRA)

• Endangered Species Act (ESA)

• National Environmental Policy Act (NEPA)

Federal Insecticide, Fungicide, and Rodenticide Act

FIFRA requires that chemicals used for control have approved labels and that all label 

requirements are followed. These requirements can include applicable uses, maximum 

application rates, handling instructions, and personal protective equipment (PPE). If no label is 

available for the emergency in question (i.e., the pest of concern is not listed as one for which the 

chemical may be used), a new label or a label exemption may be obtained.

Endangered Species Act

ESA requires that all Federal actions, including emergency responses, must not harm federally 

protected, threatened, or endangered species. Before an action can begin, one must determine if 

protected species are in the project area, and if so, measures must be put in place to protect them 

from adverse effects of the action. Such work requires coordination with the U.S. Fish and 

Wildlife Service (FWS) or the National Marine Fisheries Service.

Several methods are available to ensure ESA compliance, but the exact method chosen is 

dictated by the nature of the emergency, the proposed response, and the location. In the earliest 

possible stage of the response, Policy and Program Development’s Environmental and Risk 

Analysis Services (PPD– ERAS) and PHP’s Environmental Compliance (PHP–EC) play critical
10/2019-01 Emergency Management Framework 50

roles in providing the necessary guidance and in conducting the necessary analyses to develop 

the required documentation.

National Environmental Policy Act

NEPA requires that Federal agencies consider in writing the potential adverse effects of their 

actions, which often requires public input. The exact nature of the documentation and public 

involvement is dictated by the potential for adverse effects and the significance of those effects.

Most emergency responses will include actions that require up to 30 days of public comment 

prior to initiation of the action. Thus, PPD’s ERAS and PHP’s EC staffs must be involved early 

in the process of planning a response so the required public involvement can be put into place 

and not hinder the speed of the response.

The first step is Environmental Assessment (EA), which can be completed in a few months 

leading to a Finding of No Significant Impact (FONSI), in which case, the NEPA requirements 

are met. If the initial assessment finds significant impact on the environment or human health, an 

Environmental Impact Statement (EIS) must be completed, which can take several years to 

complete.

State and Local Environmental Laws

The state plant health regulatory agency in the affected State is responsible for contacting the 

State and local agencies with jurisdiction over environmental and human health to determine the 

applicable non-Federal laws.

All-Hazards Emergency Support Function

PPQ–FO

The Federal Emergency Management Agency’s (FEMA) mission is to support our citizens and 

first responders to ensure that, as a nation, we work together to build, sustain, and improve our 

capability to prepare for, protect against, respond to, recover from, and mitigate all hazards.

Coordinates the response to all-hazard emergencies, including natural catastrophes such as 

hurricanes, tornados, tsunamis, earthquakes, and volcanic eruptions.

The FEMA National Response Framework (NRF) is a guide to how the nation responds to all 

types of disasters and emergencies. It is built on scalable, flexible, and adaptable concepts 

identified in NIMS to align key roles and responsibilities across the nation. The NRF describes 

the principles, roles, and responsibilities, and coordinating structures for delivering the core 

capabilities required to respond to an incident and further describes how response efforts 

integrate with those of the other mission areas. This framework is always in effect and 

describes the doctrine under which the nation responds to incidents. The structures, roles, 

and responsibilities described in this Framework can be partially or fully implemented in the 

context of a threat or hazard, in anticipation of a significant event, or in response to an incident. 

Selective implementation of the NRF’s structures and procedures allows for a scaled response, 

delivery of the specific resources and capabilities, and a level of coordination appropriate to each 

incident.
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The NRF may be activated in response to one or more of the following:

• A Federal department or agency acting under its own authority has requested the 

assistance of the Secretary of Homeland Security

• The resources of State and local authorities are overwhelmed and Federal assistance has 

been requested by the appropriate State and local authorities responding to a major 

disaster or an emergency as defined under the Stafford Act or a catastrophic incident

• More than one Federal department or agency has become substantially involved in 

responding to an incident

• The Secretary of Homeland Security has been directed to assume responsibility for 

managing a domestic incident by the President

Different Federal departments or agencies lead the coordination of the Federal government’s 

response depending on the type and magnitude of the incident. The lead agencies are also 

supported by other agencies bringing relevant capabilities to bear in responding to the incident. 

For example, FEMA leads and coordinates Federal response and assistance when the President 

declares a major disaster or emergency under the Stafford Act. Federal agencies are assigned 

support functions on the basis of authorities, resources, and capabilities.

The following 15 numbered Emergency Support Functions (ESF) are assigned to Federal 

agencies:

1. Transportation

2. Communications

3. Public works and engineering

4. Fire fighting

5. Information and planning

6. Mass care, emergency assistance, temporary housing, and human services

7. Logistics

8. Public health and medical services

9. Search and rescue

10. Oil and hazardous materials response

11. Agriculture and natural resources

12. Energy

13. Public safety and security

14. Superseded by the National Disaster Recovery Framework

15. External affairs

USDA has delegated to APHIS the lead for ESF 11, and two of the five primary functions are:

• Responding to animal and agricultural health issues

• Providing technical expertise in support of animal and agricultural emergency 

management

APHIS has ESF 11 structure at the national and field levels, including one ESF 11 coordinator to 

each of the 10 FEMA Regions. The ESF 11 Coordinator works with States, territories, Tribes,
10/2019-01 Emergency Management Framework 52

and locals, in addition to other Federal programs and FEMA. The APHIS Emergency 

Preparedness Committee (EPC) accomplishes ongoing, consolidated, APHIS-wide, prevention 

and preparedness activities on behalf of the Administrator. APHIS programs have senior level 

(typically Senior Executive Service) member on the EPC. The EPC is charged with coordinating 

the agency’s overall response and contribution of resources during an ESF 11 activation to an 

all-hazard emergency.

FEMA National Incident Management 

https://www.fema.gov/national-incident-management-system

All-Hazards Emergency Support Function 11 (ESF-11) 

https://www.fema.gov/pdf/emergency/nrf/nrf-esf-11.pdf
10/2019-01 Emergency Management Framework 53

Chapter 6: Recovery

Introduction

During an ongoing response and after an emergency response is complete, Plant Protection and 

Quarantine (PPQ) works with Federal agencies; State, Tribal, and local governments; and the 

private sector to develop and implement systems designed to provide long- term stability and 

protection from the pest or disease that caused the emergency. Recovery includes plant health 

regulations, eradication, best management practices, and restoration plans.

PPQ’s recovery activities include the following:

• Long-term protection plan

• Demobilization

• National Plant Disease Recovery System (NPDRS)

• Science-based methods and technology

• Outreach

Long-Term Protection Plan

PPQ–PM

PPQ works with State, Federal, and Tribal agencies, industry, and stakeholders to develop and 

implement long-term plans designed to prevent further domestic plant health emergencies from 

occurring. The long-term plan could include one or more of the following strategies:

Eradication

Eradication programs are designed to eliminate the pest and the risks associated with its spread 

to other areas or States. Eradication is considered provided the biology and epidemiology of the 

pest supports this approach, the necessary tools are available, and the effort is financially and 

operationally feasible. Examples of eradication programs include programs for exotic fruit flies, 

the European grapevine moth, plum pox virus, the Asian long-horned beetle, the pale cyst 

nematode, the golden nematode, and the boll weevil.

Pest Mitigation

Pest-mitigation programs are designed to mitigate the damage, risk, and economic impact of 

pests that are extremely difficult to control and almost impossible to eradicate. Examples of pestmitigation programs are those for the emerald ash borer, European gypsy moth, Japanese beetle, 

and Phytophthora ramorum. Mitigation practices are based on the following:

• Voluntary or nonvoluntary

• Critical control points

For example, the Phytophthera ramorum program uses a systems approach to address the

pathogen’s continued presence in certain nurseries. This approach includes intensive surveillance 

for the disease at the nursery and, if the pathogen continues to be detected, the mandatory 

adoption of measures designed to mitigate the pathogen’s presence at certain critical points in the 

nursery’s production system. The European gypsy moth’s “Slow-the-Spread” program uses a 

trap and lure system to determine the front of the gypsy moth infestation. When determined,
10/2019-01 Emergency Management Framework 54

Animal and Plant Health Inspection Service (APHIS) in conjunction with State and other Federal 

partners including the National Park Service and Forestry Service, works to deploy biological 

controls and additional trapping to detect and reduce pest populations. In addition, biological 

controls and sterile insect techniques have been developed and are in programmatic use for a 

variety of pests.

Integrated Pest Management

Integrated Pest Management (IPM) plans are designed to suppress the pest population below 

economic levels utilizing various tools and strategies. Many of the tools may be developed by 

PPQ with Federal and State cooperators and transferred to producers for implementation.

Examples of IPM approaches include the programs for soybean rust, white fly, cherry blossom 

moth, and sugarcane rust.

Regulations

Developed regulations can include control over the movement of restricted commodities, 

treatment to reduce pest populations on the commodity, or the use of plow-down dates for crop 

destruction to disrupt the life cycle of the pest in question. These examples of regulations are 

some of the methods used to facilitate the movement of commodities to their destinations.

Regulatory Framework

The regulatory framework supports both eradication and pest mitigation and can include interim, 

proposed, and final rules or State regulatory authorities.

Interim Rules—used to establish a new quarantine in the Code of Federal Regulations (CFRs) on 

an emergency basis or when prior public comment is not in the best interest of the public

Proposed and Final Rules—used for the long-term regulatory requirements or maintenance of 

ongoing programs; can also be used to approve new treatments or protocols for interstate 

movement of regulated articles under existing regulations; issued by APHIS with USDA–Office 

of General Counsel (OGC) and U.S. Office of Management and Budget (OMB) review or 

clearance

Compliance Agreements—established with industry to ensure compliance with the regulations 

established to support the recovery

State Regulatory Authority—States are encouraged to take the initial lead on any new plant 

health emergency in a State to ensure a timely and effective response; federal regulatory 

authorities will simultaneously work with the States to ensure all necessary requirements are 

appropriately and expeditiously completed

Demobilization

PPQ–FO

Demobilization refers to the process and procedures used by PPQ and cooperators to ensure 

orderly, safe, and efficient return of an incident resource to its original location and status. The 

following two criteria must be satisfied:
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• All personnel are debriefed following demobilization, and the supervisor is notified of 

return to routine job duties

• Equipment and nonconsumable materials are inventoried, released, and returned to 

controlling agencies

Although demobilization of certain resources occurs throughout the incident, most 

demobilization activities occur after the emergency response.

APHIS Mobilization Guide 

https://www.aphis.usda.gov/library/manuals/pdf/aphis_1050.pdf

National Plant Disease Recovery System

ARS–NPDRS

The National Plant Disease Recovery System (NPDRS) is mandated by Homeland Security 

Presidential Directive number 9 (HSPD-9). The purpose of NPDRS is to ensure the tools, 

infrastructure, communication networks, and capacity required for mitigating the impact of highconsequence plant disease outbreaks are available to allow a reasonable level of crop production.

Each disease-specific plan is intended to provide a brief primer on the disease, assess the status 

of critical recovery components, and identify disease management research, extension, and 

education needs. These documents are not intended to be stand-alone documents addressing all 

aspects of the plant disease outbreak and all decisions that must be made and actions taken to 

achieve effective response and recovery. They are, however, documents that will aid the U.S. 

Department of Agriculture (USDA) and guide others in further efforts directed toward recovery 

from a high-consequence plant disease. The plans are a cooperative effort of university, industry, 

and government scientists sponsored by the American Phytopathological Society and the USDA.

PPQ has been instrumental in assuring the NPDRS has engaged not only Federal, but State 

partners in developing strategies for recovery from all high-consequence plant health 

emergencies.

Science-Based Methods and Technologies

Science-based methods and technologies require a scientific assessment that supports recovery 

strategies. The methods and technologies ensure the tools and methods are developed to achieve 

pest mitigation goals and strategies in an efficient and scientifically valid manner.

Outreach

Outreach to stakeholders and other interested parties is critical to a successful recovery. Working 

with the National Plant Board (NPB) and National Association of State Departments of 

Agriculture (NASDA), we can use the tactics described in the “Communication and Outreach” 

section of this document to keep all parties aware of recovery strategies, and overall progress, 

and ensure participation in public and industry meetings. Coordinated engagement ensures a

USDA–Agricultural Research Service–Office of Pest Management–National Plant Disease Recovery 

System

https://www.ars.usda.gov/crop-production-and-protection/plant-diseases/docs/npdrs/
10/2019-01 Emergency Management Framework 56

balanced recovery approach. In addition, recognition activities can be held to announce the end 

of a program (e.g., Asian longhorn beetle in Chicago, Illinois, plum pox virus (PPV) in 

Pennsylvania, and European grapevine moth (EGVM) in California).
10/2019-01 Emergency Management Framework 57

Chapter 7: Roles and Responsibilities

Introduction

National Operations Managers (NOMs) in Field Operations (FO) and National Policy Managers 

in Policy Management (PM), as well as subject matter experts (SMEs) are involved in plant 

health emergency response and have specific roles and responsibilities. While personnel from all 

three core functional areas (CFAs) are expected to work together as a cross-functional working 

group, the overall leadership lies with the National Policy Manager in Riverdale, MD.

For the purposes of this document, emergency programs are those programs involving one or 

more of the following:

• Identifying and delimiting new outbreaks of a quarantine pest

• Coordinating with industry, Federal agencies, and State, Tribal, and local governments to

organize and implement coordinated actions designed to contain, control, or eradicate a 

quarantine pest

• Coordinating the development of a domestic regulatory framework that quarantinesthe 

pest while facilitating interstate commerce of regulated articles that pose plant health 

risks

• Formulating and pursuing funding on an emergency basis (as needed)

Plant Protection and Quarantine (PPQ)–PM, Riverdale

National Policy Managers within Pest Detection and Emergency Programs (PDEP) provide 

leadership, overall direction, and guidance from the national perspective that includes, but is not 

limited to the following:

1. Executive decisionmaking support

a. PDEP coordinates with FO, Science and Technology (S&T), various units within 

PM, and others to gather the critical information needed for the PPQ executive 

team to make decisions regarding the nature and goals of the emergency response 

when a quarantine pest has been detected. PDEP also ensures the States and 

critical stakeholders affected by the emergency response have had the opportunity 

to provide their perspective and input for the executive team’s consideration.

2. Policy management

a. Drafts program policy and recommendations for agency consideration

b. Initiates communication and coordinates the development of program policy in 

alignment with the PPQ–New Pest Advisory Group (NPAG) recommendations 

and PPQ management team decisions regarding the nature and goals of the 

emergency response

c. Initiates and coordinates consultation with Federal agencies and public and 

private organizations concerned with the emergency and response actions under 

consideration

d. Consults with State, local, and Tribal governments
10/2019-01 Emergency Management Framework 58

e. Stays abreast of program status, changes, or evolving critical issues provided by 

the field and others

f. Performs timely program reviews to ensure objectives are met and activities are 

cost effective

g. Provides support to the Deputy Administrator on specific program issues as 

needed

3. Budget development

a. Develops a budget for the program in consultation with the field and the States

i. Initiates and facilitates the development of the budget for the emergency 

response and associated performance measures

ii. Works with the Deputy Administrator’s office through PPQResource 

Management and Planning Services (PPQ–RMPS) to secure funding

iii. Works with the APHIS budget staff to complete the program assessment 

rating process, including the development of the performance measuresto 

be reported to the U.S. Office of Management and Budget (OMB)

4. Program management and coordination; PHP provides the overall program coordination

a. With PPQ–S&T to

i. Initiate the NPAG report

ii. Request New Pest Response Guidelines (NPRGs), for pests not known to 

occur in the U.S.

iii. Determine if a technical working group (TWG) is needed to provide 

science-based recommendations

iv. Identify and ensure PPQ–Center for Plant Health Science and Technology 

(CPHST) is charged with the scientific and technical aspects including 

identifying the priorities among the required activities for the emergency 

response

b. In consultation with FO and others to ensure national consistency occurs on the 

following program operations:

i. With Federal agencies; State, Tribal, and local governments; industry; and 

public and private organizations concerned with the emergency and 

response actions under consideration

ii. With the APHIS ESF-11 national coordinator and the regional ESF-11 

coordinators when an all-hazards incident impacts an emergency response 

program

5. Mobilization of resources available for consultation
10/2019-01 Emergency Management Framework 59

6. Liaison with other resources as needed

a. Ensures overall coordination occurs within PPQ and with other Federal agencies; 

state, local, and Tribal governments; industry; and public and private 

organizations involved in the emergency response. Coordinates with PPQ’s plant 

health programs and APHIS’ International Services (APHIS–IS) on programs that 

involve international activity.

7. Communication and collaboration; develops and maintains communication plans with 

APHIS–Legislative and Public Affairs (LPA), PPQ FO, and the PPQ Deputy 

Administrator’s office as follows:

a. Prepares information for APHIS and USDA executive leadership based on input 

from situation reports and other information compiled through the crossfunctional working group (CFWG)

b. Works with APHIS–LPA to issue press releases, pest alerts, and program 

brochures

c. If determined appropriate, develops communications outlets using social media 

and the Internet

d. Ensures appropriate public meetings are held in consultation with APHIS–LPA

e. Prepares and sends out State Plant Regulatory Officials (SPRO) letters

f. Convenes conference calls with the National Plant Board (NPB), PPQ leadership, 

and CFWG

g. Coordinates with State Plant Health Directors (SPHDs) and the field in 

communicating with affected State, local, and Tribal agencies, industry, and 

stakeholders

h. Coordinates with CFWG, and stakeholders to ensure a robust range of alternative 

actions are considered in response to the emergency

i. Generates talking points, mini-memos, and other documents as needed

j. Establishes and maintains the public Web page, when applicable, through 

information technology (IT) protocols

k. Ensures all appropriate personnel at all levels of the organization are informed

l. Ensures a consistent message is communicated by all levels of the organization 

with Federal Emergency Management Agency (FEMA) and other external entities 

regarding the coordination of the plant health emergency response program with a 

separate ESF-11, all- hazards response

m. Manages and coordinates the relationships and communications with affected 

industry representatives at the national level

n. Coordinates with the field managers to develop a consistent message to be 

communicated with industry and other stakeholders at the local level

o. Coordinates with CFWG, the States, and APHIS–LPA in developing an outreach 

plan (includes coordinating with the media at the national level)

p. Communicates any local political issues to FO and larger political issues to the 

Deputy Administrator’s office
10/2019-01 Emergency Management Framework 60

q. Represents PPQ at program, stakeholder, and all applicable meetings

r. Represents the agency’s official position on program issues

8. Data management

a. Ensures national-level deployment, integration, and coordination of data 

management teams in the emergency response

9. Regulatory framework development

a. Works with PPQ–Plant Health Programs–Regulatory Coordination and 

Compliance (PPQ–PHP–RCC) to develop the regulatory framework governing 

the emergency response

b. Determines which regulatory tool is most appropriate

c. Works with FO and SPHDs to ensure Federal quarantines match actual pest 

distribution or the quarantines established and maintained by the States

d. Verifies parallel State regulations are in place as required

e. Facilitates the development of Federal Domestic Quarantine Orders

10. Environmental compliance requirements

a. Works with field managers and the National Pesticide Coordinator to address 

potential environmental and treatment issues

b. Works with APHIS’s environmental services to address environmental issues

i. Works with PPQ–PHP Environmental Compliance to conduct the 

appropriate National Environmental Policy Act (NEPA) and Endangered 

Species Act (ESA) analyses (environmental assessments, environmental 

impact statements, etc.) to ensure proposed actions will not adversely 

affect the quality of the human environment or threaten endangered 

species

ii. Develops and coordinates environmental monitoring plans for the program

11. Issues management

a. Engages PPQ’s Phytosanitary Issues Management (PPQ–PIM) staff to address 

trade issues

b. Manages the larger political and legal issues, coordinating with the PPQ Deputy 

Administrator, APHIS Administrator, and Undersecretary for Marketing and 

Regulatory Programs Business Services (MRPBS)

12. PPQ–S&T coordination

a. Assures the work of the PPQ–TWG with the CFWG, ensuring it meets the 

technical needs of emergency response operations

b. In cooperation with the CFWG, provide input to PPQ–S&T regarding the 

emergency response program’s scientific and technical needs, identifies and 

establishes the priorities among all project requests, and monitors progress

c. Initiates and coordinates routine communication with field managers and PPQ–

S&T scientists working on the program
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Field Operations

The primary role can be executed by a field operations director, assistant executive director, and 

other relevant field operations managers as needed to coordinate and implement operations 

among States as follows.

1. Implements agency policy

a. Participates in the development of and is responsible for the implementation of 

the agency’s policy and provides feedback to PPQ–PM regarding the 

effectiveness of the policy

2. Budget

a. Works with the national policy manager, field managers, and FO director and 

budget analyst to develop the necessary program budgets

b. Participates in the development of performance measures and provides 

documentation on program activities and performance measure information to the 

national policy manager to meet the monitoring and report requirements to the

U.S. OMB via APHIS’s policy and program development

c. Provides status of funds and updated budget information to the national policy 

manager as program progresses

3. Program management coordination; Provides overall coordination at the field level and 

field perspective in the development of the overall

a. Emergency response plan

b. Budget (resource management)

c. Communication plan

d. Regulatory framework

e. ESF-11 activities involving a plant health emergency program

f. Field operations consistency within and among States and across regions

4. Resource management

a. Develops the program- or field-level budget

b. Identifies and ensures the impacted States receive the resources needed to 

effectively respond to the emergency

c. Recruits additional personnel as needed

d. Establishes and manages cooperative agreements in affected States

e. Facilitates the procurement of equipment, supplies, vehicles, etc.

5. Resources mobilization

a. Coordinates the deployment and management of resources (people, equipment, 

supplies, etc.) for the emergency response program and any associated ESF-11 

response when needed

6. Trains, exercises, deploys, and coordinates incident management teams (PPQ–NIMTs); 

provides field and area command for the emergency response
10/2019-01 Emergency Management Framework 62

7. Communication

a. Communicates with SPHDs and SPROs on program issues and keeps field 

operations staff and national policy management staff informed

b. Provides input on the daily and emergency situation report and ensures adherence 

with agency continuity and contingency plans

c. Ensures the incident commander provides the incident situation report

d. Participates in all policy and response coordination discussions

e. Represents PPQ at local stakeholder and other meetings

f. Advertises legal notice of the availability for comment of NEPA documents

g. Communicates and coordinates with local emergency preparedness stakeholders 

to facilitate and support an effective incident command system response

h. Represents the agency’s official position on program issues

8. Data management

a. Ensures deployment, integration, and coordination of data management teams as 

needed in the emergency response

b. Coordinates with SPHD on the use of Smuggling Interdiction and Trade

Compliance (SITC) and APHIS–Investigative and Enforcement Services (IES) 

expertise to support the emergency response, as needed (e.g., trace-backs, traceforwards) to discover pathways and to identify any regulatory compliance issues 

associated with new pest introduction or to conduct investigations

9. Regulatory framework

a. Works with PPQ policy managers to assist in the development the domestic 

regulatory framework governing the program

b. Works with the field and SPHDs to ensure Federal quarantines match actual pest 

distribution or the quarantines established and maintained by the States

10. Environmental compliance

a. Works with field and local operations staff to address environmental issues

b. Works with PPQ’s policy managers, the environmental compliance unit, and 

APHIS environmental services to develop appropriate environmental 

documentation (environmental assessments, environmental impactstatements, 

etc.) as needed.

11. Issue management

a. Manages and communicates stakeholder concern, political, and legal issues to the 

attention of agency national leadership

i. Engages PPQ–PHP and DA–PIM staff to address trade issues

ii. Engages PPQ–PHP and Quarantine Policy Analysis and Support (QPAS) 

to address overseas monitoring of domestically regulated pests (e.g., gypsy 

moth program)

iii. Manages and communicates to national leadership on overarching issues 

that emerge
10/2019-01 Emergency Management Framework 63

State Plant Health Directors

The primary role of the SPHD is to coordinate the Federal emergency response with the 

appropriate State, local, and Tribal officials.

1. Unified command and incident management

a. Serves as first responder and co-leads with the appropriate State official in the 

unified command structure. The SPHD coordinates the implementation of the 

emergency response plan (survey, control, regulatory framework) at the field level

b. Participates with the CFWG to develop the following:

i. Emergency response plan

ii. Budget

iii. Communications plan

iv. Regulatory framework

2. Resource management

a. Deploys resources and ensures efficient and effective use of resources in the field

b. Ensures proper communication and coordination with field managers for 

resources beyond the local capacity

3. Communication

a. Generates and communicates daily status reports following the communication 

protocols established by the incident commanders as specified by the Plant Health 

Emergency Framework

b. Procedures for emergency situation and spot reports for effects to our operations, 

facilities, and employees is dictated in Departmental Manual 1800

c. Initiates any consultations with State, local, and Tribal governments

d. Participates in all policy and response coordination discussions

e. Ensures all field personnel are kept informed of changes in policy direction

f. Advertises legal notice of the availability for comment of NEPA documents

g. Provides feedback to the field and national policy managers on the effectiveness 

of program policy and operations

h. Communicates with the affected constituencies within the State

i. Represents the agency’s official position on program issues

j. Conducts Tribal consultations

4. Data management

a. Ensures quality data are collected and entered into the established system on a 

daily basis

b. Keeps the incident commanders informed of progress being made in the field and 

to support daily operational planning decisions

c. Coordinate to ensure the proper data collect and management devices are 

sufficient
10/2019-01 Emergency Management Framework 64

5. Issues management

a. Addresses local political and public issues

b. Keeps the field and national policy managers informed

c. Elevates issues with broader implications to the field or national level

Center for Plant Health, Science, and Technology

The primary role of S&T is to provide technical and scientific information. This information will 

be used to make regulatory and operations decisions and to develop new tools and technologies 

for operational use.

1. Coordinates with the National Identification Service (NIS) to identify or confirm the 

identification of exotic pests with appropriate tools utilizing the best available science 

and provides others laboratory services and subject matter expertise as needed

2. Pest Analysis

a. Conducts a preliminary risk assessment to

i. Identify the host range of the pest

ii. Identify the potential pathways for pest introduction and spread

iii. Determine the likelihood of establishment in the United States

iv. Identify and calculate the impacts associated with a pest

b. Provides information to field operations or the national policy manager regarding 

trace-forwards or trace-backs, if needed, to determine if stop sale or recalls are 

required

c. Identifies currently available survey and control tools

3. Develops the NPAG report to recommend the most appropriate response to a detection of 

a pest of regulatory significance

4. Provides leadership for a TWG

a. PPQ–S&T acts as liaison with USDA–Agricultural Research Service (ARS), 

universities, and other research organizations

b. Provides guidance and develops strategy and tools to detect and identify the pest 

and to conduct delimiting surveys

c. Provides scientific input on the size of quarantine areas based on the biological 

and ecological parameters of the pest

d. Provides recommendations on effective tools designed to contain, control, or 

eradicate the pest

e. Provides recommendations on other scientific and technical issues

5. Develops and provides appropriate and efficacious methods

a. To mitigate a plant pest incursion

b. To adapt or improve detection technology for plant pests

c. To adapt or improve identification technology for plant pests
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6. NPRGs

a. Provides the technical and scientific support in the development of the NPRGs to 

support the emergency response operations

7. Liaison role

a. Coordinates with other entities to obtain needed scientific and technical resources

b. Coordinates with the National Plant Diagnostic Network (NPDN) to identify their 

labs’ capacity to assist and determine the NPDN contribution during an 

emergency program

8. Provides technical transfer training

a. Provides training to all necessary units and personnel in PPQ and elsewhere on 

the survey and provides identification methods to ensure successful outcomes

b. Develops technical documentation to support the ongoing application of the 

technical tools provided

9. Program management

a. Works with program managers to develop and prioritize the project slate to 

support the emergency response

10. Communication

a. Provides information to program managers regarding the ongoing status of

scientific and technical projects that PPQ– CPHST is charged to deliver
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Chapter 8: State Plant Protection Resources

Introduction

State departments of agriculture, territories, and possessions are members of the National 

Association of State Departments of Agriculture (NASDA). The mission of NASDA is to 

represent the State departments of agriculture in the development, implementation, and 

communication of sound public policy and programs that support and promote the U.S. 

agricultural industry, while protecting consumers and the environment. NASDA works closely 

with the U.S. Department of Agriculture Animal and Plant Health Inspection Service (USDA–

APHIS) and the plant protection branches of the States via a standing committee dedicated to 

plant health issues. NASDA maintains a Web site containing information on each member State. 

For further information, refer to the NASDA Web site.

The plant protection and regulatory subdivisions within their departments of agriculture or other 

relevant subdivisions—such as the departments of natural resources or entomology at land-grant 

universities—are members of the National Plant Board (NPB), a national organization of State 

and territory plant protection resources that work regionally and nationally with USDA–APHIS 

to coordinate and carry out plant protection programs. The NPB also maintains a Web site 

containing contact information for each member State and territory and up-to-date information 

on laws, rules, and programs. For further information, refer to the NPB Web site.

State Authorities

State plant protection and regulatory authorities are generally designed to address regulatory 

issues within the State’s jurisdiction. These regulatory issues include the intrastate movement of 

plants and plant products and the interstate movement of plants and plant products in the absence 

of APHIS regulations for pests of limited distribution. Intrastate regulations generally conform to 

the model Nursery Stock Certification Standards and the Principles of Plant Quarantine that have 

been adopted by the NPB. When APHIS interstate regulations are in place, the State, territory, or 

possession internal or intrastate requirements must be similar to the Federal regulatory measures.

While State, territory, or possession plant protection laws and rules vary somewhat depending 

upon the regulatory needs of the stakeholders, in most cases, they include a plant health 

emergency authority to respond to new plant pests of economic importance when detected.

Additional related authorities at the State level may provide the authority to enter onto private 

properties for inspection purposes and the ability to stop the intrastate movement of regulated 

articles at risk of moving plant pest or disease.

Many States can require regulated entities to maintain records or can subpoena records of 

regulated entities. Many States can also conduct control activities and operations.

Refer to the Web sites of NPB and NASDA for further information concerning State, territories, 

and other possessions.

National Plant Board (NPB) 

http://nationalplantboard.org/
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National Association of State Departments of Agriculture (NASDA) 

http://www.nasda.org/

National Plant Board (NPB) 

http://nationalplantboard.org/

State, Territory, and Possession Protection Duties and Responsibilities 

State departments of agriculture, territories and possessions (through their plant protection and 

regulatory divisions) have the responsibility to carry out general pest detection activities and 

have the authority and ability to respond to new plant pests or disease incursions. The level of 

response varies depending upon the resources available in the State, territory, or possession.

Generally, when a new pest or disease is detected and identified as being of economic 

importance or possibly requiring a prescribed response, an agricultural plant health emergency is 

declared by the appropriate State official. This allows the release of plant health emergency 

response resources to apply to the specific plant pest issue.

Plant health emergency response typically takes the form of a Plant Health Emergency Program 

involving survey, regulations, control, public relations, and administrative sections. The current 

structure used in most plant health emergency response programs is the Incident Command 

System (ICS). The use of ICS has many advantages including standardization and coordination 

of response functions that can allow for a multistate and joint Federal response (unified 

command) using a standardized framework. Refer to the Incident Command System on page 31 

for further information.

Refer to the Web sites of NPB and NASDA for further information concerning State, territory, 

and possession plant protection resources and responsibilities.

National Association of State Departments of Agriculture (NASDA) 

http://www.nasda.org/

National Plant Board (NPB) 

http://nationalplantboard.org/

State and Federal Cooperative Agreement Program

A combined State and Federal coordinated response is often the best approach to effectively 

address the duties and responsibilities required to safeguard U.S. plant health. When APHIS 

funding is transferred to a State, partnership programs are carried out through the cooperative 

agreement process.

The cooperative agreement process is initiated at the State level between APHIS and the State 

departments of agriculture. The officials include the State Plant Health Directors (SPHD) and the 

State Plant Regulatory Officials (SPRO). A cooperative agreement is comprised of the 

agreement document, workplan, and a financial plan and requires semi-annual and annual 

reporting.

The workplan and financial plans are important because they describe the scope of the work, 

division of labor, and the financial obligations or budget. Cooperative agreements are an 

important part of the Plant Health Emergency Response Framework. The agreements are 

developed by the appropriate State and Federal plant health emergency program managers and
10/2019-01 Emergency Management Framework 68

fiscal officers with knowledge of the program being developed and the cooperative agreement 

process.

Refer to the Web site of the Agreements Services Center (ASC) for further information on the 

cooperative agreement process.

Financial Management Division (FMD), Financial Services Branch, Agreements Services Center (ASC) 

https://www.aphis.usda.gov/aphis/ourfocus/business-services/financial-managementdivision/financial_services_branch/agreements_service_center/asc
10/2019-01 Emergency Management Framework 69

Glossary

Use this glossary to find the meaning of specialized words, abbreviations, acronyms, and terms 

used by Plant Protection and Quarantine Pest Detection and Emergency Programs (PPQ–PDEP). 

To locate where in the manual a given definition, term, or abbreviation is mentioned, refer to the 

Index.

Definitions, Terms, and Abbreviations

AAR/IP. After Action Report/Improvement Plan

AC. Area Command

AgSas. USDA–Agriculture Select Agent Services

AMS. Agricultural Marketing Service

APHIS. USDA–Animal and Plant Health Inspection Service

APS. American Phytopathological Society

APTL. DHS–CBP–Agriculture Programs and Trade Liaison 

AQAS. Agricultural Quarantine Activity System, a Web database 

AQI. CPHST–Agricultural Quarantine Inspection

AQIPT. USDA–PPQ–CPHST–Agricultural Quarantine Inspection and Port Technology

ARM. Agriculture Risk Management

ARS. USDA–Agricultural Research Service

ASC. Agreements Services Center

BIWAC. Biosurveillance Indications and Warning Analytic Community

CAPS. Cooperative Agricultural Pest Survey Program

CBP. U.S. Department of Homeland Security–Customs and Border Protection

CCC. Commodity Credit Corporation

CDC. HHS–Centers for Disease Control and Prevention

CFA. Core Functional Areas

CFIA. Canadian Food Inspection Agency 

CFR. Code of Federal Regulations 

CFWG. Cross-Functional Working Group

CITES. Convention on Internal Trade of Endangered Species of Flora and Fauna

CONUS. Continental United States

CPHST. Center for Plant Health Science and Technology
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CSREES. Cooperative State Research, Education, and Extension Service

DA. Deputy Administrator

DART. PPQ–FO–Data, Analysis, Risk, and Targeting

DHS. U.S. Department of Homeland Security DEE. Declaration of Extraordinary Emergency

DFO. Director of Field Operations 

DMR. Data Management Resources 

DMT. Data Management Team 

DOD. Department of Defense

DOJ. U.S. Department of Justice 

EA. Environmental Assessment 

EAN. Emergency Action Notice

EC. PHP–Environmental Compliance 

EGVM. European Grapevine Moth 

EIS. Environmental Impact Statement 

EPC. Emergency Program Coordinator

EPICA. Exotic Pest Information Collection and Analysis

EPPO. European and Mediterranean Plant Protection Organization

EQS. Employee Qualification System

ERAS. APHIS–PPD–Environmental and Risk Analysis Services

ERC. Emergency Response Coordinator

ES. Environmental Services

ESA. Endangered Species Act

ESF. Emergency Support Functions

FDA. U.S. Food and Drug Administration

FEMA. Federal Emergency Management Agency

FIFRA. Federal Insecticide, Fungicide, and Rodenticide Act

FMD. Financial Management Division

FO. PPQ–Field Operations

FONSI. Finding of No Significant Impact

FQO. Federal Quarantine Order
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FSIS. USDA–Food Safety and Inspection Service

FWS. U.S. Fish and Wildlife Service

GCSI. Greater Caribbean Safeguarding Initiative

GIS. Geographic Information Systems

HHS. U.S. Department of Health and Human Services 

HSEEP. Homeland Security Exercise and Evaluation Program 

HSPD. Homeland Security Presidential Directives

ICE. Immigration and Customs Enforcement

ICS. Incident Command System

IES. APHIS–Investigative and Enforcement Services 

IMSD. NIMS–Incident Management Systems Division 

IMT. Incident Management Team

IPHIS. Integrated Plant Health Information System

IPM. Integrated Pest Management

IPPC. International Plant Protection Convention 

IRM. PHP–Imports, Regulations, and Manuals 

IT. Information Technology

LPA. Legislative and Public Affairs

MAC. Multiagency Coordination

MDB. CPHST–Molecular Diagnostics and Biotechnology

MRPBS. APHIS–Marketing and Regulatory Programs Business Services

NAPIS. National Agricultural Pest Information System

NAPPO. North American Plant Protection Organization

NASDA. National Association of State Departments of Agriculture

NBIC. National Biosurveillance Inegration Center 

NEPA. National Environmental Policy Act 

NIFA. National Institute for Food and Agriculture 

NIMS. National Incident Management System

NIMT. PPQ–National Incident Management Team

NIS. PPQ-National Identification Service
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NOM. National Field Operations Manager

No-year funding. Funding that can be carried over and will remain with the program

NPAG. PPQ–New Pest Advisory Group

NPB. National Plant Board

NPDN. National Plant Diagnostic Network 

NPDRS. National Plant Disease Recovery System 

NPPO. National Plant Protection Organization 

NPRG. New Pest Response Guidelines

NRF. National Response Framework

OBPA. USDA–Office of Budget and Program Analysis

OCONUS. Outside the continental United States

ODA. Office of the Deputy Administrator 

OGC. USDA–Office of General Counsel 

OIG. USDA–Office of the Inspector General 

OMB. U.S. Office of Management and Budget 

OPIP. Offshore Pest Information Program 

OPIS. Offshore Pest Information System 

PAPP. Perimeter Approach to Plant Protection 

PAS. NAPPO–Phytosanitary Alert System

PCC. Permitting and Compliance Coordination 

PDC. PPQ–Professional Development Center 

PDEP. Pest Detection and Emergency Programs 

PEQ. Postentry Quarantine

PERAL. CPHST–Plant Epidemiology and Risk Analysis Laboratory

pest. includes insects and other arthropods, weeds, plant disease agents, and microorganisms

pest exclusion. preventive measures to keep exotic pests out of the country or out of a state

PestID. database containing all the information recorded from the PPQ Form 309 Pest 

Interception Record

PHP. PPQ-Plant Health Programs 

PIM. Phytosanitary Issues Management 

PIS. Plant Inspection Station
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PM. PPQ–Policy Management

POP. PHP–Preclearance and Offshore Programs

PPA. Plant Protection Act of 2000

PPD. APHIS–Policy and Program Development

PPE. Personal Protective Equipment

PPQ. APHIS–Plant Protection and Quarantine

PPV. Plum Pox Virus

QPAS. PHP–Quarantine Policy Analysis and Support 

RAD. PPD–Regulatory Analysis and Development 

RCC. Regulatory Cooperation Council

REM. Regional Emergency Management

RMPS. PPQ–Resource Management and Planning Services

RPM. PHP–Regulatory Permits and Manuals

SBML. Systematic Botany and Mycology Laboratory

select agents. pathogens that have been deemed a severe threat to the public, animal or plant 

health, or animal or plant products

SEL. USDA–ARS–Systematic Entomology Laboratory 

SITC. Smuggling Interdiction and Trade Compliance 

SME. Subject Matter Expert

SNICAS. SITC–National Information and Communication System

SNL. Systematic Nematology Laboratory

SRA. Security Risk Assessment 

SPHD. State Plant Health Director 

SPRO. State Plant Regulatory Official 

S&T. PPQ- Science and Technology

TED. APHIS–Marketing and Regulatory Programs Business Services–Human Resources 

Division–Training and Employee Development

TWG. Technical Working Group

UC. Unified Command

USDA. United States Department of Agriculture

USFS. United States Forest Service
10/2019-01 Emergency Management Framework 74

weather events. state of the atmosphere with respect to wind, temperature, cloudiness, moisture, 

and pressure
10/2019-01 Emergency Management Framework 75

Index

After Action Report/ Improvement Plan (AAR/IP),

32

Agreements Services Center (ASC), 69 

Agricultural Marketing Service (AMS), 44 

Agricultural Research Service (ARS), 44 

agriculture and natural resources, 53 

Agriculture Bioterrorism Protection Act, 7

Agriculture Bioterrorism Protection Act of 2002, 8 

Agriculture Quarantine Inspections (AQI), 5 

Agriculture Quarantine Activity System (AQAS),

28

Agriculture Quarantine Inspection (AQI), 18 

Agriculture Risk Management (ARM), 28 

Agriculture Select Agent Services (AgSAS), 24 

all-hazards emergency support function, 51 

American Phytopathological Society, 56 

Animal and Plant Health Inspection Service

(APHIS), 5

APHIS contingency funds, 42 

APHIS Mobilization Guide, 45 

APHIS contingency funds, 42 

ArcGIS, 47

area command, 46

audiences, 38

authorities, 35, 36

State, 37

authorities and enabling legislation, 7

Biosurveillance Indications and Warning Analytic 

Community (BIWAC), 6

Canada, 26

Canadian Food Inspection Agency (CFIA), 22

CCC funding, 42

Center for Plant Health Science and Technology 

(CPHST), 20, 26

Centers for Disease Control and Prevention 

(CDC), 24

Commodity Credit Corporation (CCC), 37

funding, 42

communication and outreach, 35, 37

communications, 53

method of, 40

order and frequency, 39

compliance agreements, 55

Congressional supplemental funding, 42

continental United States (CONUS), 21

Convention on International Trade in Endangered 

Species of Wild Fauna and Flora (CITES), 20 

Convention on International Trade of Endangered

Species of Flora and Fauna (CITES), 16

conventions

of the Framework, 9

cooperative agreement program, 68

Cooperative Agricultural Pest Survey (CAPS), 6,

25, 27

Cooperative State Research, Education, and 

Extension Service (CSREES), 44

core functional areas (CFA), 41

Customs and Border Protection (CBP), 5

Data Analysis Risk and Targeting (DART), 47

data management, 35, 46

data management resources, 47

data management resources (DMR), 47

declaration of emergency, 37

declaration of extraordinary emergency, 37

demobilization, 55

Department of Defense (DOD), 44 

Department of Justice (DOJ), 24 

development of trade-related regulations, 14 

Director of Pest Detection and Emergency

Programs

contact information for, 11

drill, 33

early warning systems, 26

emergency assistance, 53

Emergency Action Notification (EAN), 49 

emergency action notifications (EAN), 28 

emergency coordination, 35, 44

emergency funding, 35, 42

Emergency Management Incident Situation 

Reports, 48

emergency response communications team, 37

emergency situation reporting, 35 

Emergency Support Functions (ESF), 53 

Endangered Species Act (ESA), 7, 20, 50

energy, 53

Environmental and Risk Analysis Services 

(ERAS), 50

Environmental Assessment (EA), 51

Environmental Compliance (EC), 50
10/2019-01 Emergency Management Framework 76

Environmental Impact Statement (EIS), 51

environmental monitoring, 36

eradication, 54

ESRI, 47

eTrap, 47

European and Mediterranean Plant Protection 

Organization, 26

Exotic Pest Information Collection and Analysis 

(EPICA), 15

external affairs, 53

Farm Bill Section 10007, 42, 43

Federal Emergency Management Agency 

(FEMA), 51

Federal Emergency Management Agency’s 

(FEMA), 31

Federal Insecticide, Fungicide, and Rodenticide 

Act (FIFRA), 7, 50

Federal Noxious Weed Act, 8, 36

Federal Order (FQO), 49 

Federal Plant Pest Act, 36 

Federal Register, 37 

Federal Seed Act, 8

Finding of No Significant Impact (FONSI), 51

fire fighting, 53

full-scale exercises, 33

functional exercise, 33

games, 33

Geographic Information Systems (GIS), 47

glossary, 70

Golden Nematode Act, 36

Greater Caribbean Safeguarding Initiative (GCSI),

22

Health and Human Services (HHS), 24

human services, 53

Homeland Security Exercise and Evaluation 

Program (HSEEP), 32

Homeland Security Presidential Directive 5 

(HSPD-5), 31

Homeland Security Presidential Directives, 7

ICS training courses

advanced, 32

basic, 32

identification and diagnostic services, 28 

identification and diagnostics, 35 

incident action plan, 48

incident command, 44

Incident Command System (ICS), 6, 25, 31, 35

Incident Management Systems Division (IMSD),

31

Incident Management Teams (IMT), 25 

incident situation report, 48 

information and planning, 53 

integrated pest management, 55

Integrated Plant Health Information System 

(IPHIS), 27, 47

interim rules, 49, 55

International Plant Protection Convention (IPPC),

16

issuance of permits, 14

logistics, 53

long-term protection plan, 54

eradication, 54

integrated pest management, 55

pest mitigation, 54

regulations, 55

regulatory framework, 55

mass care, 53

Mexico, 26

mobilization, 35, 43

monthly situation report, 48

multiagency coordination (MAC), 46

National Agricultural Pest Information System 

(NAPIS), 25, 27

National Association of State Departments of 

Agriculture (NASDA), 38, 56, 67

National Biosurveillance Integration Center 

(NBIC), 6

National Biosurveillance Integration System 

(NBIS), 6

National Disaster Recovery Framework, 53

National Emergency Program (EPC), 43

National Environmental Policy Act (NEPA), 7, 51 

National Field Operations Manager (NOM), 43 

National Identification Service (NIS), 6, 27 

National Identification Service (NIS), 41

National Identification Services (NIS), 20

National Incident Management System (NIMS),

31, 35

National Incident Management Team (NIMT), 44

National Institute for Food and Agriculture 

(NIFA), 44

National Operations Manager (NOM), 58 

National Plant Board (NPB), 29, 38, 56, 67 

National Plant Diagnostic Network (NDPN), 41 

National Plant Diagnostic Network (NPDN), 6, 25
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National Plant Disease Recovery System (NPDRS),

56

National Plant Health Emergency Management 

Framework

explanation of, 5

National Plant Protection Organization (NPPO),

16

National Response Framework (NRF), 51

New Pest Advisory Group (NPAG), 25, 29

New Pest Response Guidelines (NPRG), 25, 30 

North American Perimeter Approach (NAPP), 22 

North American Plant Protection Organization’s

(NAPPO)

alert system, 25

Noxious Weed Control and Eradication Act of 

2004, 8

Office of Budget and Program Analysis (OBPA),

42

Office of General Counsel (OGC), 49

Office of Management and Budget (OMB), 42 

offshore commodity preclearance programs, 5 

Offshore Pest Information System (OPIS), 15 

offshore pest surveillance, 14, 15

offshore preclearance, 21

oil and hazardous materials response, 53

outreach, 56

outside the continental United States (OCONUS),

21

Perimeter Approach to Plant Protection (PAPP),

22

permits to safeguard plants, plant products, and 

other organisms, 17

Permitting and Compliance Coordination (PCC),

18

pest detection program, 27

pest exclusion, 5, 14

introduction to, 14

pest identification, 20

pest identification, 14

pest mitigation, 54

pest mitigation strategies, 36

pest notification–business process, 28

pest risk assessments, 5

PestID, 28

PestLens, 15

phytosanitary alert system, 26 

phytosanitary issues management, 14 

Phytosanitary Issues Management (PIM), 15

Plant Epidemiology and Risk Analysis Laboratory 

(PERAL), 17, 29

Plant Health Programs (PHP), 16

Plant Health Programs (PPQ–PHP), 14

plant inspection stations, 14 

plant inspection stations, 19 

Plant Protection Act of 2000, 7

Plant Protection Act of 2000 (PPA), 36

Plant Protection and Quarantine (PPQ), 5, 12

Field Operations (FO), 13

mission statement, 12

Office of the Deputy Administrator, 12

Policy Management (PM), 12

Science and Technology (S&T), 13

Policy and Program Development (PPD), 42

port activities, 20

port technologies, 20

postentry quarantine (PEQ), 22

PPQ Emergency Programs Manual, 45 

PPQ Emergency Response Manual, 8 

preclearance and offshore programs, 14

Preclearance and Offshore Programs (POP), 21

preclearance program, 14

predeparture, 21

predeparture programs, 14

preparedness, 25

preparedness infrastructure, 28 

Professional Development Center (PDC), 33 

proposed and final rules, 50, 55

public health and medical services, 53

Public Health Security and Bioterrorism 

Preparedness and Response Act of 2002, 8

public safety and security, 53

public works and engineering, 53

Quarantine Policy Analysis and Support (QPAS),

19

rapid detection and delimiting surveys, 35, 40

recovery, 54

regulations, 55

Regulatory Analysis and Development (RAD), 17 

Regulatory Cooperation Council (RCC), 22 

regulatory framework, 36, 49, 55

reprogramming, 42

response, 35

risk and pathway analysis, 14, 17

ROAM, 47

roles and responsibilities, 58

CPHST, 65
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Field Operations (FO), 62

PPQ, 58

SPHDs, 64

science-based methods, 56

Scope

of the Framework, 7

search and rescue, 53

security risk assessment (SRA), 24

select agent program, 14 

Select Agent Services, 24 

seminar, 33

single incident command, 35

SITC SNICAS, 27

Smuggling and Interdiction Trade Compliance 

(SITC)

National Information and Communication 

System (SNICAS), 25

smuggling interdiction and trade compliance, 14

Smuggling Interdiction and Trade Compliance 

(SITC), 5, 23

State plant protection resources, 67

Stafford Act, 52

State authorities, 67

State funding, 42, 43

State Plant Health Director (SPHD), 13, 40, 68

State Plant Health Directors (SPHD), 23, 27

State Plant Regulatory Official (SPRO), 13 

State Plant Regulatory Officials (SPRO), 27, 68 

Systematic Botany and Mycology Laboratory

(SBML), 41

Systematic Entomology Laboratory (SEL), 41 

Systematic Nematology Laboratory (SNL), 41 

tabletop, 33

technical working group (TWG), 35 

Technical Working Group (TWG), 6 

trade regulations

development of, 17

training, 31

transit permits, 18

transportation, 53

treatments and fumigations, 14

temporary housing, 53

U.S. Fish and Wildlife Service (FWS), 16

unified command, 45

United States Department of Agriculture, 5

users

of the Framework, 7 

unified command, 35 

weekly situation report, 48 

workshop, 33