FRSMP: Training for Federal Collaborators

Animal and 

Plant Health 

Inspection 

Service

Plant 

Protection and 

Quarantine

Professional 

Development 

Center

July 2014

Federally Recognized State

Managed Phytosanitary Program

(FRSMP)

Training for Federal Collaborators

FRSMP: Training for Federal Collaborators

Training Objectives

After reading this booklet, you will be able to:

• Cite the federal acts that allow collaboration between the USDA and the States.

• Identify different Sections of the Plant Protection Act relevant to the Cooperative 

Arrangement between the Animal and Plant Health Inspection Service (APHIS) and your 

State.

• Complete appropriate form when detecting FRSMP pests outside ports of entry.

• Complete appropriate form and case file when referring penalties to APHIS.

Background

The Federally Recognized State Managed Phytosanitary (FRSMP, pronounced “free-stamp”) 

program establishes a process for the Federal recognition of certain state-managed plant pest 

programs. APHIS established the FRSMP Program to promote greater consistency in actions 

taken against certain plant pests, whether those pests arrive at U.S. ports of entry or are moving 

interstate. The FRSMP Program allows the United States to meet our obligations under the 

International Plant Protection Convention (IPPC). FRSMP pests are regulated under the Plant 

Protection Act of 2000.

The Plant Protection Act of 2000 (PPA) authorizes the Secretary of Agriculture to cooperate with 

the States or political subdivisions thereof, domestic or international organizations or 

associations, and individuals to carry out the programs of the PPA. 

Besides the PPA, the Talmadge-Aiken Act of 1962 allows the Secretary to enter into cooperative 

agreements with States to avoid duplication of functions, facilities, and personnel, and to attain 

closer coordination and greater effectiveness and economy in administration of Federal and State 

laws and regulations.

Federal Collaborators are State Department of Agriculture officials, with specialized plant health 

skills, designated under a federal personnel action that authorizes them to complete APHIS 

program activities, complete APHIS training, or perform APHIS-sanctioned duties under a 

position description established by APHIS. Federal Collaborators do not receive salary from 

APHIS.

Responsibilities

The activities performed by Federal Collaborators will be covered by cooperative arrangements 

and work plans between APHIS and the State. Assignments are characterized by requirements 

for a thorough working knowledge and alertness to potentially harmful pests and plants; the 

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FRSMP: Training for Federal Collaborators

exercise of judgment and experience involved in the interpretation and application of rules, 

regulations, and laws in recommending or determining courses of action.

Federal Collaborators may direct subordinates to take remedial action on a foreign origin 

FRSMP pest as recognized for that state when it is encountered in the course of domestic 

phytosanitary activities. The authority for such actions will be under the Plant Protection Act of 

2000 (PPA). Federal Collaborators and those subordinates will be responsible for taking 

regulatory enforcement actions within their State under the collaborator agreements. 

Also, to clarify, under a FRSMP Cooperative Arrangement, Federal Collaborators will not 

engage in port of entry inspections or in any inspection activity outside their state. Authority is 

limited to taking regulatory actions on the specifically recognized FRSMP pest within their state. 

If other pests of Federal concern are found, they must notify APHIS/PPQ.

Actions taken by the collaborator to mitigate pest risk must be the least drastic action that is 

feasible to address the risk. If a treatment is available to mitigate pest risk, it must be recognized 

by APHIS1 to be effective and in accordance with EPA label requirements and any applicable 

state requirements.

The Plant Protection Act of 2000 (PPA)

The Plant Protection Act is Title IV of the Agricultural Risk Protection Act enacted into law on 

June 20, 2000. It consists of 35 Sections grouped into five Subtitles. 

The sources of your federal authority to regulate FRSMP pests included in your State’s program 

are limited to Sections 414 and 422 of the Plant Protection Act. Section 414 provides the 

authority to apply remedial measures to items in order to destroy or dispose of FRSMP pests in 

foreign commerce. Section 422 provides the authority to gather and compile information and to 

conduct investigations necessary for the administration and enforcement of FRSMP pests. Refer 

to the PPA at www.ag.senate.gov/download/plant-protection-act for more details.

PPQ Form 523 Emergency Action Notification (EAN) and PPQ Form 518 

Report of Violation

PPQ Form 523 Emergency Action Notification is a document that allows a Federal Collaborator 

to communicate the status of a shipment to the interested parties. This form specifies to 

stakeholders why the shipment is being refused and a basic explanation as to what action is 

necessary. PPQ Form 523 should only be issued when the FRSMP pest found can be traced back 

to a foreign origin. 

1 In the Treatment Manual

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FRSMP: Training for Federal Collaborators

By completing blocks 1-16 in PPQ Form 523, the Federal Collaborator documents specific 

information about the issue that prompted the completion of an Emergency Action Notification 

(EAN). It also presents remedial actions to correct the problem. After completing the Form, the 

collaborator presents the EAN to the person responsible for the articles involved. That person 

signs and dates the form (in block 17) to acknowledge receipt of the document. The collaborator 

does the same (in block 18). After the action is executed and the problem is resolved, the 

collaborator makes a record in block 19.

Upon detection of a FRSMP pest during inspection activities, the Federal Collaborator will 

complete a PPQ form 523 to officially communicate the required remedial action to the shipper. 

The collaborator will submit a copy to APHIS/PPQ for entry into the APHIS databases.

PPQ Form 518 is a document used to refer violations of APHIS regulations. In the event of a 

failure to comply with the instructions specified in PPQ form 523, the collaborator will 

document the failure on a PPQ form 518, write an officer statement, gather evidence and submit 

to APHIS/PPQ as soon as possible. The collaborator should keep notes on all communications 

with the alleged violator to be able to provide detailed information to APHIS if necessary.

Case file in support of PPQ Form 518 Report of Violation

A case file consists of a written statement by the Federal Collaborator who witnessed or 

identified the violation and any other evidence collected. The statement should be completed as 

close to the violation date as possible. Be specific. Identify all known facts, dates, names, titles, 

quantities and common and scientific names, if available.

Collect evidence in a fair and impartial manner, making every effort to obtain a complete, factual 

record. Examples of evidence are:

• Federal Collaborator’s statement

• Airway bill, bill of lading, waybill

• Photographs

• Invoices

• Packing lists

• Permits

Give an exhibit number to each piece of evidence that you collect. Label and assemble your 

evidence in the following order:

1. PPQ Form 518 Report of violation.

2. Federal Collaborator statement.

3. Other documentary evidence. When submitting photographs, write date, description and 

photographer’s name on the back of the photograph. Or on a piece of paper on which the 

photograph is mounted.

4. Physical evidence.

After all evidence is collected, send to APHIS/PPQ. 

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FRSMP: Training for Federal Collaborators

Case Studies

Case Study #1

Cargo arriving in a Florida state interdiction station is infested with a FRSMP pest. The shipment 

originated in Mexico and made entry into U.S.A. in Brownsville, Texas. Florida participates in a 

FRSMP program for that pest. While conducting their investigation, State inspectors find out that 

CBP Agriculture Specialists in Brownsville had issued an Emergency Action Notification (EAN) 

to the shipper. The EAN ordered the importer NOT to take the cargo to Florida, a FRSMP state. 

The Florida inspectors are Federal Collaborators. What actions should they take?

Answer. Federal Collaborators should:

1. Issue an EAN providing options for disposition of the cargo (re-direct and avoid2

, destroy 

or treat3

). 

2. Submit a Report of Violation (PPQ form 518) to APHIS-PPQ –include evidence and 

statement (s). NOTE: Importer violated the order given in the EAN issued by CBP in 

Brownsville.

3. Witness the destruction or treatment of the shipment.

4. Document the action taken in the EAN (destruction, treatment).

5. Submit the EAN to APHIS-PPQ for entry in the EAN database.

Case Study #2

Cargo arriving at an Oregon distribution center is infested with a FRSMP pest. The shipment 

originated in South Korea and made entry in Portland. Oregon participates in a FRSMP program 

for that pest. While conducting their investigation, State inspectors find out that this pest had not 

been detected at the port of entry. 

What actions should the Federal Collaborators take?

Answer. Federal Collaborators should:

1. Issue an EAN providing options for disposition of the cargo (re-direction, destruction or 

treatment). 

2. Witness the re-direction, destruction or treatment of the shipment.

3. Document the action taken in the EAN (re-direct and avoid destroy, treat).

4. Submit the EAN to APHIS-PPQ for entry in the EAN database.

2 Redirect and Avoid: If pest is found in a FRSMP state for that pest, the shipment may be redirected to a nonFRSMP state, BUT must also avoid (prevent movement to) all states that regulate this pest under FRSMP. 3 PPQ approved treatment.

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FRSMP: Training for Federal Collaborators

APPENDIX I: PPQ Form 523 Emergency Action Notification (EAN)

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FRSMP: Training for Federal Collaborators

APPENDIX II: Instructions for Completing an Emergency Action 

Notification. FRSMP Federal Collaborators 

Block 

Number

Field Name Instructions

1 PPQ Location Enter location where the EAN is being issued.

2 Date Issued Enter date that the EAN was issued.

3 Name and 

Quantity of 

Articles

Article Name. Determine the commodity of the shipment. Do 

not list packing material as Articles unless they are the actual 

commodity being shipped. 

Specify if the commodity is a plant product, animal product. If 

description does not fit animal or plant definition. Define as 

‘Miscellaneous”.

Quantity. Write numerical quantity of the shipment

Unit of Measure. Disclose the unit of measure for the quantity 

(e.g. kilogram, box, bag, etc.).

4 Location of 

Articles

Enter place where the shipment is located. Name of warehouse, 

business, dock, etc.

5 Destination of 

Articles

Enter address of final destination. Do NOT use the broker 

address as destination.

6 Shipper Enter address of person or business that shipped articles into 

your state. If origin of shipment is foreign, use foreign address of 

shipper.

7 Name of Carrier Enter name of airline, ship line, trucking company involved. 

Write flight number, voyage number or truck license number.

8 Shipment ID No(s) Examples: airway bill, bill of Lading, waybill, container 

numbers. Other identifying numbers are acceptable. 

9 Owner/Consignee 

of Articles

Enter name and address.

10 Port of Lading Enter the foreign city and country where shipment was loaded 

onto the conveyance. 

11 Date of Arrival Enter the date that the shipment entered port of entry. 

12 Id of Pests(s), 

Noxious Weeds, or 

Article(s)

Enter scientific name of pest

12a Pest Id No. If pest was identified by PPQ, provide Pest Id Number. 

12b Date Intercepted Enter the date the pest was intercepted

13 Country of Origin Enter county of origin

14 Grower No. Field only applies to foreign facilities in which the product was 

grown or processed. Leave blank if unknown or if it does not 

apply

15 Foreign Certificate 

No.

Enter number if known. Otherwise, leave blank.

15a Place Issued If block 15 is completed. Enter place where foreign certificate 

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FRSMP: Training for Federal Collaborators

was issued. Otherwise, leave blank.

15b Date If block 15 is completed. Enter date when foreign certificate was 

issued. Otherwise, leave blank.

16 Action Required Specify PPQ treatment if one is available. Provide options of 

destruction or treatment as well as redirect and avoid. Use 7CFR 

330.106 as the authority to issue this notification. 

17 After Receipt of 

this Notification 

Complete 

Specified Action

Select the amount of time for action to take place

Acknowledgement 

of Receipt of EAN

Enter the name, signature and title of the person accepting the 

EAN. Enter the date it was signed.

18 Signature of 

Officer

Enter signature and name of officer issuing the EAN

19 Revocation of 

Notification

Enter the action that was actually taken.

Record if a penalty form was issued (PPQ Form 518).

Record if there were articles mislabeled, misrepresented, or 

concealed. Write additional remarks if necessary.

Enter signature and name of officer who can confirm the action 

was taken.

Enter the date it was signed

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FRSMP: Training for Federal Collaborators

APPENDIX III: PPQ Form 518 Report of Violation

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FRSMP: Training for Federal Collaborators

APPENDIX IV: Instructions for Completing a Report of Violation. 

Block Instructions

1 Enter date violation was discovered

2 Enter 7CFR 330.106

3 Fill in name of the city and state where the violation was found.

4 Fill in the name of the country where the cargo originated or was grown.

5 Fill in the amount and the name of the cargo involved.

6 Enter airway bill, bill of lading number, etc.

7 Fill in name, position and address of alleged violator

8,9 Check and fill in as appropriate

10 Fill in the name and the business address of the carrier

11 Check in and fill in as appropriate

12 Fill in as appropriate

13 Fill in the name and the business address of the consignee

14 List action(s) taken to eliminate pest risk

15 Fill in any pertinent remarks

16 If the alleged violator did not provide a written statement, record all relevant verbal 

statements in your statement and indicate so in this block

17 A separate statement must be written and accompany each PPQ Form 518

• Write your explanation of the violation

• Give statement an exhibit number

• Describe all the facts that resulted in the article listed in Block 5 being in 

violation of the regulation listed in Block 2

• State all facts including who, what, when, where and how

• Include the following information where appropriate:

 When and where the violation occurred

 How the violation occurred

 Identify the owner of the cargo

 Identify the employer of the violator

 Refer to your exhibits and explain their relevance to the case

 State if you witnessed the violation

 Sign and date statement. If more than one collaborator was involved in 

the violation, each official must write a separate statement

18-20 Fill in

21 Leave blank

22-24 Fill in

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FRSMP: Training for Federal Collaborators

APPENDIX V: Review Questions

Refer to the Plant Protection Act to answers questions 1-5

1. Which Section provides authority to take remedial action on plant pests?

A) 401

B) 411

C) 412

D) 414 

2. Which Section provides the authority to conduct investigations?

A) 412

B) 414

C) 421

D) 422 

3. PPQ Form _______ is a document that allows a Federal Cooperator to communicate the 

status of a shipment to the interested parties. This form specifies to stakeholders why the 

shipment is being refused and a basic explanation as to what action is necessary.

4. PPQ Form ________ is a document used to refer violations of APHIS regulations.

5. When preparing a case file, what are three examples of documents that can be used as 

evidence?

6. According to instructions for PPQ Form 518, what information should be included in your 

statement?

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FRSMP: Training for Federal Collaborators

7. According to instructions for PPQ Form 523, what three actions may be available when a 

FRSMP pest is detected?

8. What two acts support the collaboration between the USDA and the States?

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FRSMP: Training for Federal Collaborators

APPENDIX VI: Answers to Review Questions

Refer to the Plant Protection Act to answers questions 1-5

1. Which Section provides authority to take remedial action on plant pests?

A) 401

B) 411

C) 412

D) 414 

2. Which Section provides the authority to conduct investigations?

A) 412

B) 414

C) 421

D) 422 

3. PPQ Form 523 is a document that allows a Federal Cooperator to communicate the 

status of a shipment to the interested parties. This form specifies to stakeholders why the 

shipment is being refused and a basic explanation as to what action is necessary.

4. PPQ Form 518 is a document used to refer violations of APHIS regulations.

5. When preparing a case file, what are three examples of documents that can be used as 

evidence?

Any of these:

• Federal Collaborator’s statement

• Airway bill, bill of lading, waybill

• Photographs

• Invoices

• Packing lists

• Permits

6. According to the instructions for PPQ Form 518, what information should be included in your 

statement?

• When and where the violation occurred

• How the violation occurred

• Identify the owner of the cargo

• Identify the employer of the violator

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FRSMP: Training for Federal Collaborators

• Refer to your exhibits and explain their relevance to the case

• State if you witnessed the violation

7. According to instructions for PPQ Form 523, what three actions may be available when a 

FRSMP pest is detected?

• Treatment

• Redirect and Avoid

• Destruction

8. What two acts support the collaboration between the USDA and the States?

Plant Protection and Talmadge Aiken Acts

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