Federally Recognized State 

Managed Phytosanitary Program 

Manual 
Some processes, equipment, and materials described in this manual may be patented. Inclusion in this 

manual does not constitute permission for use from the patent owner. The use of any patented invention in 

the performance of the processes described in this manual is solely the responsibility of the user. APHIS 

does not indemnify the user against liability for patent infringement and will not be liable to the user or to any 

third party for patent infringement. 

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 any individual’s income is derived from any public assistance program. (Not all prohibited bases 

apply to all programs). Persons with disabilities who require alternative means for communication 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. 

When using pesticides, read and follow all label instructions. 

First Edition Issued 2012 
Contents 

FRSMP 

Program 

Figures LOF-1 

Tables LOT-1 

Introduction 1-1 

Policy 2-1 

Procedures 3-1 

Roles and Responsibilities 4-1 

Quality Assurance 5-1 

DEEP Process Guide for State Plant Regulatory Officials 6-1 

Appendix A A-1 

Appendix B B-1 

Appendix C C-1 

Appendix D D-1 

Appendix E E-1 

Appendix F F-1 

Appendix G G-1 

Appendix H H-1 

Glossary Glossary-1 

Index Index-1 

01/2024-25 FRSMP Program Manual TOC-1 
Contents 

TOC-2 FRSMP Program Manual 01/2024-25 
Figures 

FRSMP 

Program 

Figure A-1 FRSMP Cooperative Arrangement Template (page 1) A-1-5 

Figure A-2 FRSMP Cooperative Arrangement Template (page 2) A-1-6 

Figure A-3 FRSMP Cooperative Arrangement Template (page 3) A-1-7 

Figure A-4 FRSMP Cooperative Arrangement Template (page 4) A-1-8 

Figure A-5 FRSMP Cooperative Arrangement Template (page 5) A-1-9 

Figure A-6 FRSMP Cooperative Arrangement Template (page 6) A-1-10 

Figure A-7 FRSMP Cooperative Arrangement Template (page 7) A-1-11 

Figure A-8 FRSMP Cooperative Arrangement Template (page 8) A-1-12 

Figure A-9 Example of PPQ Form 518, Report of Violation A-1-15 

Figure A-10 Example of PPQ Form 523, Emergency Action Notification A-1-

16 

01/2024-25 FRSMP Program Manual LOF-1 
Figures 

LOF-2 FRSMP Program Manual 01/2024-25 
Tables 

FRSMP 

Program 

Table E-1FRSMP-OC-SN-PFA Relationships E-8 

Table E-2FRSMP-SN-PFA Comparison E-10 

Table F-1FRSMP Program Flow F-2 

Table G-1General Information—Pest G-2 

Table G-2General Information—Program G-3 

Table G-3Presence G-4 

Table G-4Possible Introduction Pathways G-5 

Table G-5Maintenance/management/verification G-6 

Table G-6Quarantine Regulations G-7 

01/2024-25 FRSMP Program Manual LOF-1 
Tables 

LOF-2 FRSMP Program Manual 01/2024-25 
Introduction Chapter 

1 

Contents 

Overview 1-1 

Definition 1-1 

Purpose 1-2 

Users 1-2 

Scope 1-2 

Authorities and Related Documents 1-2 

How to Use the Manual 1-3 

Keeping The Manual Current 1-3 

Transmittals 1-3 

Knowing What’s Revised 1-3 

Your Responsibilities 1-3 

Conventions 1-3 

Boldfacing 1-3 

Bullets 1-4 

Table of Contents 1-4 

Control Data 1-4 

Hypertext 1-4 

Numbering Scheme 1-4 

Overview 

Definition 

The International Standard for Phytosanitary Measures (ISPM) No. 5 of the 

International Plant Protection Convention (IPPC) defines official control as 

“the active enforcement of mandatory phytosanitary regulations and the 

application of mandatory phytosanitary procedures with the objective of 

eradication or containment of quarantine pests or for the management of 

regulated nonquarantine pests.” This definition refers to regulated pests in an 

importing country that are present but not widely distributed. 

USDA–APHIS–PPQ is basing the Federally Recognized State Managed 

Phytosanitary (FRSMP) Program on the guidelines for applying official 

control as outlined in ISPM No. 5 Supplement No. 1. In addition to eradication 

and containment programs, USDA–APHIS–PPQ recognizes programs that 

exclude a pest based on the same criteria. States are required to provide 

evidence that introducing a pest presents an economic or environmental risk 

03/2024-26 FRSMP Program Manual 1-1 
Introduction 

Purpose 

and take domestic phytosanitary action, thereby justifying equivalent action at 

ports of entry to protect the endangered area. 

Purpose 

The purpose of the FRSMP Program is to recognize State programs that 

eradicate, exclude, or contain any plant pest that is not eradicated or contained 

by APHIS–PPQ. Through this program, APHIS–PPQ recognizes State 

quarantines at ports of entry. 

As per IPPC guidance, shipments containing pests under recognized State 

management are subject to equivalent phytosanitary requirements in domestic 

and foreign commerce. 

Users 

Users of the FRSMP Program Manual may include the following: 

State Plant Regulatory Officials (SPROs) 

Official Control Advisory Panel 

PPQ Policy Management Staff 

PPQ Field Operations Staff 

Department of Homeland Security, Customs and Border Protection (CBP) 

personnel 

Scope 

This manual applies to the a process that can be adapted and used by PPQ for 

the following: 

Recognizing State-managed phytosanitary programs 

Detecting plant pests under recognized State management at ports of entry 

Authorities and Related Documents 

Manual for Agricultural Clearance (MAC) (internal use only) 

Plant Inspection Stations Manual 

Plant Protection Act 2000 

PPQ Treatment Manual 

7 CFR 330.106 

Job Aids 

1-2 FRSMP Program Manual 03/2024-26 
Introduction 

How to Use the Manual 

State laws and regulations 

IPPC 

The World Trade Organization (WTO) Agreement on the Application of 

Sanitary and Phytosanitary Measures 

ACIR 

7 CFR 305 

How to Use the Manual 

Review the contents of this manual to get a feel for the scope of material 

covered. Glance through the relevant section and become familiar with the 

information organization. 

Use the chapter tables of contents to locate chapter-specific information. If the 

table of contents is not specific enough, turn to the index to find the topic and 

its page number. 

Keeping The Manual Current 

The most up-to-date version of the FRSMP Program Manual is available 

online at the PPQ Manuals Unit website. 

Transmittals 

This manual and its subsequent revisions is accompanied by transmittal 

announcements. These are numbered consecutively. 

Knowing What’s Revised 

Except for changes to the index, revisions are marked with change bars (refer 

to example in the left margin). 

Your Responsibilities 

Read all revisions when you receive the transmittal announcement. 

Conventions 

Conventions are established by custom and are widely recognized and 

accepted. Major conventions used in this manual follow. 

Boldfacing 

Boldfaced type is used to highlight negative or important words throughout the 

manual. Examples of these words include but are not limited to: not, do not, 

except, never, other than. 

03/2024-26 FRSMP Program Manual 1-3 
 

Introduction 

Conventions 

Bullets 

Bulleted lists indicate there is no order to the information listed. 

Table of Contents 

Chapters include a table of contents listing the heading titles. 

Control Data 

Information placed at the top and bottom of each page helps users to keep track 

of their location in the manual. At the top of the page is the chapter and firstlevel heading. At the bottom of the page is the month, year, manual transmittal 

number, manual title, and page number. 

Hypertext 

Blue colored hypertext indicates an active link to another section of the 

manual, email address, or website. 

Numbering Scheme 

A two-level numbering scheme is used to indicate pages, tables, and figures. 

The first number represents the chapter. The second number represents the 

page, table, or figure. 

Table 1-1 Reporting Issues With or Suggestions For the FRSMP Program Manual 

If you: Then: 

 Are unable to access the 

online manual 

 Have a suggestion for 

improving the format (layout, spelling, etc.) 

CONTACT PPQ Manuals Unit at 240-529-0350 or by email at PPQ.IRM.ISMU.Manuals.Feedback@usda.gov. 

Disagree with a policy, procedure, or the admissibility of a 

commodity 

CONTACT the FRSMP Program unit by email at FRSMP@usda.gov. 

Have an urgent situation 

requiring an immediate 

response 

CONTACT the FRSMP Program unit by email at FRSMP@usda.gov. 

1-4 FRSMP Program Manual 03/2024-26 
Policy Chapter 

2 

Contents 

Purpose 2-1 

Background 2-2 

Policy 2-4 

Process 2-4 

Process 2-4 

Alternate Petition Process for PPQ-initiated FRSMP Program Decisions 2-5 

Approved Programs 2-5 

Preclearance 2-6 

Cooperative Arrangement (AT) 2-6 

Provisional FRSMP Status 2-6 

Termination 2-7 

Notice to Industry and Trading Partners 2-7 

Inquiries 2-7 

Purpose 

The purpose of this chapter is to communicate APHIS–PPQ’s policy for the 

recognition of State-managed phytosanitary programs. This policy is 

established though regulatory authority provided by Section 411 and 414 of the 

Plant Protection Act (PPA) (7 U.S.C. 7711) and to maintain a consistent 

safeguarding and trade policy by aligning with the International Standard for 

Phytosanitary Measures (ISPM) No. 5, Supplement No.1, Guidelines on the 

Interpretation and Application of the Concept of Official Control for Regulated 

Pests. 

The purpose of the Federally Recognized State-managed Phytosanitary 

(FRSMP) Program is to provide Federal recognition of official control 

programs implemented by States to eradicate or contain a plant pest that is 

otherwise not regulated through a Federal domestic program. State-managed 

programs that exclude a pest from a State where it is not present and where 

economic or environmental harm would result from its introduction may also 

qualify for consideration. 

03/2024-26 FRSMP Program Manual 2-1 
Policy 

Background 

Background 

Under the PPA, as amended (PPA, 7 U.S.C. 7701 et seq.), the Secretary of 

Agriculture is authorized to take such actions as may be necessary to prevent 

the introduction and spread of plant pests and noxious weeds within the United 

States. The Secretary has delegated this responsibility to the Administrator of 

the Animal and Plant Health Inspection Service (APHIS). 

While the Secretary has the authority to regulate all plant pests, the Secretary 

has chosen to narrow the scope of the plant pests that require action at the U.S. 

ports of entry to be consistent with international obligations. 

As a contracting party to the International Plant Protection Convention 

(IPPC)1

, the United States has agreed to observe the general and specific 

principles of the convention as they relate to international trade. One such 

general principle provides that “countries shall institute restrictive measures 

only where such measures are made necessary by phytosanitary 

considerations, to prevent the introduction of quarantine pests.” Accordingly, 

there is an expectation on the part of other contracting parties to the IPPC (i.e., 

U.S. trading partners) that APHIS will not exercise its authority under the PPA 

to prohibit or restrict the importation of a plant, plant product, or other article 

unless such action was necessary to prevent the introduction of a quarantine 

pest. 

The IPPC’s “Glossary of Phytosanitary Terms” defines quarantine pest as, “a 

pest of potential economic importance to the area endangered thereby and not 

yet present there, or present but not widely distributed and being officially 

controlled.” While the first consideration may be readily understood, the 

concept of “official control” is subject to further definition. Specifically, the 

IPPC defines official control as, “the active enforcement of mandatory 

phytosanitary regulations and the application of mandatory phytosanitary 

procedures with the objective of eradication or containment of quarantine pests 

or for the management of regulated nonquarantine pests.” A regulated 

nonquarantine pest is defined as a nonquarantine pest whose presence in plants 

for planting affects the intended use of those plants with an economically 

unacceptable impact and which is, therefore, regulated within the territory of 

the importing contracting party. 

Under the FRSMP Program, PPQ is responsible for policies regarding port 

inspections restricting commodities infested with a particular pest destined for 

protected States. State partners are responsible for collaborating on a common 

1 The IPPC is recognized as the standard-setting body for international phytosanitary issues in the 

World Trade Organization Agreement on the Application of Sanitary and Phytosanitary Measures. 

2-2 FRSMP Program Manual 03/2024-26 
Policy 

Background 

program for each pest, establishing eradication, control, or exclusion 

programs, and petitioning for Federal recognition of those programs. 

7 CFR part 330.200 et seq. requires a plant pest permit to be issued by APHIS 

before any pest may be imported into or moved interstate within the United 

States. 7 CFR part 330.106 specifies that APHIS may take remedial measures 

at a port of entry if a plant pest is detected on a commodity and no such plant 

pest permit has been issued. 

Upon implementation of the program, PPQ regulates FRSMP Program pests at 

ports of entry under 7 CFR part 330.106. PPQ enters into a Cooperative 

Arrangement (AT) with a State upon recognizing its program, to which 

subsequent FRSMP Program pests will be added. Phytosanitary requirements 

for interstate commerce into FRSMP States is equivalent to those expected 

from foreign trading partners. Using the AT, APHIS confers to a Federal 

collaborator authority under sections 414 and 421 of the PPA. The AT 

documents the Federal recognition of a State-managed phytosanitary program 

and formalizes the relationship between APHIS and a recognized State partner. 

APHIS defines responsibilities of both parties and designates a State 

cooperator as a “Federal Collaborator” with the responsibility to carry out 

Federal actions in very specific, defined circumstances relative to the Federal 

role in the recognized phytosanitary program. APHIS does not confer any 

authority under the PPA that is not specifically outlined in the AT and is not 

conferring authority under any other statute administered by APHIS, including 

the authority to establish and collect fees. 

When a pest is detected at a U.S. port of entry, APHIS–PPQ establishes 

complementary regulatory policies to prevent movement of the pest in 

imported commodities and/or conveyances arriving in States where a FRSMP 

Program is in place. APHIS–PPQ also considers programs that exclude a pest 

from a State where it is not present, and where economic or environmental 

harm would result from its introduction. This additional consideration is 

supported by the ISPM No. 5 Supplement 1 Guidelines on the interpretation 

and application of the concepts of “official control” and “not widely 

distributed” under “Requirements,” which states “...official control includes 

restrictions related to movement into and within the protected area(s) including 

measures applied at import.” 

Any State(s) that can justify that they would be economically or 

environmentally endangered by the introduction of a particular pest can apply 

for the designation “protected area” if the pest is not present or if present, is 

being officially contained or eradicated. APHIS-PPQ has discretionary 

authority to recognize State phytosanitary programs under the Plant Protection 

Act of 2000 (PPA). The International Plant Protection Convention (IPPC) 

includes provisions for the implementation of official control programs 

03/2024-26 FRSMP Program Manual 2-3 
 

Policy 

Policy 

(eradication or containment) by sub-national authorities such as States, 

provided such programs are officially authorized and audited by the National 

Plant Protection Organization (NPPO). APHIS-PPQ is the NPPO for the 

United States. 

Following initial implementation of the program, APHIS intends to amend 

330.200 et seq. to establish a general plant pest permit for all FRSMP pests. 

The list of FRSMP pests covered by this permit, and the restrictions upon their 

movement within the United States, will be maintained online. Following 

establishment of such a permit, whenever we approve an additional State 

petition for a FRSMP pest, we will amend the general permit accordingly. This 

permit, which we will issue pursuant to Section 411 of the PPA, will provide an 

additional regulatory structure to codify actions taken by APHIS under the 

FRSMP Program. 

Policy 

For recognition of FRSMP Programs, PPQ accepts petitions for each pest from 

interested States. (FRSMP no longer accepts common petitions from multiple 

states.) PPQ then reviews the petitions and makes decisions based on the 

established criteria and standards. PPQ will notify the States of the decision. If 

PPQ accepts the FRSMP Program, PPQ will establish a policy to take action at 

U. S. ports of entry for such pests arriving in a State with a FRSMP Program 

for that pest. PPQ will regulate pests in federally recognized programs to the 

State level at ports of entry. PPQ will continue its policy to take action on pests 

that are pending review under the FRSMP Program, but this status will change 

when: 

1. A FRSMP Program is established and recognized, 

2. States have expressed no interest in a FRSMP Program, or 

3. States are unable to establish a FRSMP Program that meets international 

requirements and PPQ cannot justify continued action. 

Process 

Refer to the following topics: 

Petition Guidelines 

Official Control Advisory Panel Charter 

Quality Assurance Guidelines 

FRSMP Program Process at Ports of Entry 

2-4 FRSMP Program Manual 03/2024-26 
Policy 

Alternate Petition Process for PPQ-initiated FRSMP Program Decisions 

Alternate Petition Process for PPQ-initiated FRSMP Program 

Decisions 

The PPQ FRSMP Program Coordinator will identify quarantine pests that may 

be considered for State-managed phytosanitary programs because they have 

been established in the United States, are not widely distributed, and are not 

under official control by APHIS-PPQ. Within the PPA, section 414 authorizes 

the Secretary to hold, seize, quarantine, treat, apply other remedial measures 

to, destroy, or otherwise dispose of any plant, plant pest, noxious weed, 

biological control organism, plant product, article, or means of conveyance 

that, among other things, is moving into the United States and that the 

Secretary has reason to believe is infested with a plant pest or noxious weed at 

the time of the movement. Under this authority, consignments of imported 

articles are inspected at the port of entry to determine whether plant pests are 

associated with them and, if so, prescribe remedial measures as described in 

the Act. APHIS typically refers to such measures as “taking action” at the port 

of entry to prevent a plant pest from being introduced into or further 

disseminated within the United States. Pests that are subject to such actions are 

referred to as “quarantine pests.” PPQ will continue to take action for pests 

with limited distribution under this authority. 

Twice a year, PPQ will provide Deregulation Evaluation of Established Pests 

(DEEP) reports to the National Plant Board. These reports will either 

recommend maintaining actions at ports of entry (POEs) or discontinuing 

taking action (deregulating). For pests being considered for deregulation, 

States have the option to apply for a State-managed phytosanitary program. If 

no State Plant Regulatory Official (SPRO) is interested in a State-managed 

phytosanitary program, action will no longer be taken at ports of entry for that 

pest. When a State or States indicate interest in a Federally Recognized State 

Phytosanitary Program for a particular pest, the pest will remain quarantine 

until APHIS-PPQ and the interested States have concluded analyses leading to 

a FRSMP petition. 

If no State petitions for a FRSMP Program, PPQ will stop taking action on that 

pest at ports of entry. 

Approved Programs 

Approved programs will be subject to audit/monitoring requirements. State 

Departments of Agriculture will assure program data are entered into the 

appropriate database and will be required to submit annual reports. 

03/2024-26 FRSMP Program Manual 2-5 
Policy 

Preclearance 

Preclearance 

PPQ Preclearance Operational Work Plans will include options for remedial 

action when a FRSMP Program pest is detected upon inspection in the 

exporting country. 

Cooperative Arrangement (AT) 

Upon approval of a petition, program States (Cooperators) will enter into a AT 

with USDA-APHIS-PPQ. The AT will define the terms under which the States 

and PPQ will take action on FRSMP Program pests and mitigation methods to 

be applied. 

States may join an existing FRSMP Program through a petition agreeing to 

established terms. 

Provisional FRSMP Status 

Under the authority of the Plant Protection Act, USDA-APHIS has the 

discretion to implement “provisional” FRSMP Program status for a 

phytosanitary pest upon receipt and preliminary review of a State’s FRSMP 

petition. If USDA-APHIS decides to implement provisional FRSMP Program 

status for a phytosanitary pest, USDA-APHIS may require remedial action on 

that pest when detected arriving in, or that is destined to, the petitioning 

State(s) during the period that USDA-APHIS is finalizing its review of that 

State’s FRSMP petition. However, Federal Collaborator status will not be 

conferred to a petitioning state agency until the petition is formally approved, 

which means no federal authority will be delegated to a state to act upon the 

proposed FRSMP Program pest during the pest’s “provisional” status. 

The “provisional” FRSMP Program status for a phytosanitary pest shall not 

exceed 60 days from the implementation unless USDA-APHIS determines it 

should be extended and the State wants an extension. Likewise, APHIS may 

determine at any time that the “provisional” status be withdrawn as necessary. 

For example, APHIS may extend a “provisional” status when a State is 

requested to submit subsequent information regarding their specific FRSMP 

petition. A “provisional” status may be withdrawn if the petition is denied, 

when a State notifies USDA-APHIS of its intent to withdraw from the petition 

process, when a State fails to complete the petition within the agreed upon time 

schedule, or a State no longer wants APHIS to take any control action against a 

specific phytosanitary pest. 

2-6 FRSMP Program Manual 03/2024-26 
Policy 

Termination 

Termination 

States shall notify the FRSMP Program Coordinator of a decision to 

terminate an approved program 

APHIS PPQ may terminate Federal recognition of a program for nonperformance after discussions with State partners 

Notice to Industry and Trading Partners 

When PPQ’s FRSMP Program becomes operational, PPQ will submit a 

Federal Register Notice, followed by a World Trade Organization Notice. The 

APHIS Stakeholder Registry will provide notification of new approved 

petitions to those subscribed as requesting notices of official control/FRSMP. 

PPQ will also issue a SPRO Letter. PPQ will post all programs and related 

information to the public on the FRSMP Program website. State programs will 

be identified as for containment, eradication, or exclusion in order to indicate 

pest presence or absence. 

Inquiries 

Direct inquiries to FRSMP@usda.gov 

03/2024-26 FRSMP Program Manual 2-7 
Policy 

Inquiries 

2-8 FRSMP Program Manual 03/2024-26 
 

Procedures Chapter 

3 

Contents 

Steps for Completing a FRSMP Program Petition 3-1 

Petition Guidelines 3-2 

International Framework 3-2 

Regulatory Conditions For Implementation 3-3 

Petition Procedures for Quarantine Pests 3-3 

Where to Send a Petition 3-5 

Administrative Requirements 3-5 

Criteria Used to Evaluate the Petition 3-5 

Port of Entry Guidelines 3-5 

Quality Assurance Guidelines 3-5 

Audit/Review Guidelines 3-5 

Program Termination 3-6 

Steps for Completing a FRSMP Program Petition 

1. The State Plant Regulatory Official (SPRO) will notify the National Plant 

Board (NPB), who will canvas for other interested SPROs and notify the 

originating SPRO of potential partners. 

2. The originating SPRO will submit the completed petition to the NPB. 

3. The NPB representative will forward the petition to the Plant Protection 

and Quarantine (PPQ) to the FRSMP Program Coordinator 

(FRSMP@usda.gov). 

For SPROs to join an existing FRSMP Program, there are two options: 

1. Agree to follow detection and control process in a recognized petition, 

submitting addendum with new parts relevant to joining state (absence or 

limited distribution, potential pathways of introduction, potential 

economic/environmental impact, state regulations). 

2. In addition to adding the above information, renegotiate detection and 

control terms, with approval from participating recognized parties. 

01/2024-25 FRSMP Program Manual 3-1 
Procedures 

Petition Guidelines 

Petition Guidelines 

These guidelines describe procedures established by the United States 

Agriculture Department, Animal and Plant Health Inspection Service, Plant 

Protection and Quarantine (USDA-APHIS-PPQ) to petition the Agency for 

official recognition of State-level plant pest regulations and associated actions. 

This program contributes to the accomplishment of USDA-APHIS-PPQ 

Strategic Goal #1 to protect agriculture from plant and animal diseases and 

pests, and Strategic Goal#4 to maintain and expand the safe trade of 

agricultural products nationally and internationally, as stated in the APHIS 

Strategic Plan FY23-27. 

International Framework 

As a member of the World Trade Organization (WTO) the U.S. agrees to 

observe the provisions of WTO agreements, including the Agreement on the 

Application of Sanitary and Phytosanitary Measures (the SPS Agreement). 

USDA-APHIS-PPQ is the U.S. Agency with primary responsibility for the 

implementation of phytosanitary measures. As such, PPQ is also responsible 

for provisions of the Agreement related to phytosanitary measures, including 

those implemented in the U.S. by other than the national government. PPQ’s 

role in this regard is to ensure that these entities comply with relevant 

provisions of the Agreement and do not take measures which are, directly or 

indirectly, inconsistent with the provisions of the Agreement. Further 

clarification of the role of PPQ under the SPS Agreement is provided by the 

International Plant Protection Convention (IPPC) and associated international 

standards. The IPPC is specifically identified by the SPS Agreement as holding 

the responsibility for standard setting associated with phytosanitary measures. 

Under the IPPC’s International Standards for Phytosanitary Measures ISPM 

No. 5, Supplement No.1, a national government or a National Plant Protection 

Organization (NPPO) should establish or recognize Official Control under 

appropriate legislative authority. The national government or NPPO should 

perform, manage, supervise, or at minimum, audit/review the Official Control 

program and ensure its enforcement. Agencies other than the NPPO may be 

responsible for aspects of official control programs, and certain aspects of 

official control programs may be the responsibility of sub-national authorities. 

3-2 FRSMP Program Manual 01/2024-25 
Procedures 

Petition Guidelines 

Regulatory Conditions For Implementation 

USDA-APHIS-PPQ has the primary authority and responsibility for 

phytosanitary measures associated with preventing the introduction and spread 

of exotic plant pests. In instances where a plant pest has become established in 

the United States but USDA-APHIS-PPQ decides not to take regulatory 

actions or establish regulatory programs, States may take actions and establish 

programs domestically. USDA-APHIS-PPQ can officially recognize these 

programs as the basis for taking regulatory actions at ports of entry which are 

consistent with the intent of the State-managed program. 

There are two situations where States may apply for Federal recognition of 

their phytosanitary programs. When USDA-APHIS-PPQ does not regulate a 

plant pest of limited distribution in the United States: 

1. A State that has that pest within its own borders may implement procedures 

to contain or eradicate the plant pest or to contain the plant pest within its 

borders. 

2. A State without that pest may implement procedures to exclude the pest in 

order to prevent the risk of introduction of the plant pest within its borders. 

Should a trading partner challenge USDA-APHIS-PPQ’s import requirements 

based on the presence of a regulated pest in the United States, USDA-APHISPPQ may encourage a State where that pest occurs to establish a Statemanaged phytosanitary program. Such a program recognized by USDAAPHIS-PPQ can provide the justification for consistent actions against the 

same pest when found with imports at ports of entry. 

Without Federal recognition of a State-managed phytosanitary program, the 

pest’s regulatory status when found with imports may change from actionable 

to non-actionable, i.e. no action will be taken if the pest is detected at ports of 

entry. Establishing a State-managed phytosanitary program that is officially 

recognized by USDA-APHIS-PPQ ensures that action will be taken at ports of 

entry if the imported article is destined to a recognized State and avoids 

potential discrimination claims by trading partners. 

To obtain a program’s designation as a FRSMP Program, States (through the 

National Plant Board) must petition USDA-APHIS-PPQ to recognize their 

established or proposed programs to exclude, eradicate or contain a regulated 

plant pest. 

Petition Procedures for Quarantine Pests 

The State should provide the following supporting information and 

documentation: 

01/2024-25 FRSMP Program Manual 3-3 
Procedures 

Petition Guidelines 

Presence 

Evidence that the pest does not exist in the State, or if it does exist, that it is 

being contained or there are programs in place for eradication. Include 

appropriate survey data, define the infested area(s), endangered area(s), and 

protected area(s), and the procedures used for establishing containment 

(including exclusion) or eradication. 

Possible Entry and Establishment 

Evidence that the pest could enter and become established in the State, or if it 

already exists in the state, that it could become widespread. 

Economic/Environmental Harm 

Evidence that the pest could cause economic and/or environmental harm in the 

State. 

Maintenance/Verification 

A description of the State actions used to maintain and monitor for pest 

absence, limit distribution, or containment (including exclusion) including a 

description of monitoring programs. 

Quarantine Regulations 

A copy of the State, local or Tribal quarantine regulations that provide for 

enforcement of the appropriate programs. 

Petition Procedures for Regulated Non-Quarantine Pests 

(RNQP) 

The State should provide the following supporting information and 

documentation. 

Economic Harm/Vulnerability 

Evidence that a particular pest could cause significant harm to plants for 

planting if the pest was not managed through a certification program. 

Quarantine Regulations/Testing 

Evidence that the State has regulatory authority and a program established to 

manage the levels of the pest in plants for planting that are the hosts for the 

pest and a copy of the State, local or Tribal quarantine regulations that provide 

for the enforcement of a management program, and testing protocols. Provide 

a description of recent State actions taken under these regulations and the 

testing protocols used in the program. 

3-4 FRSMP Program Manual 01/2024-25 
Procedures 

Port of Entry Guidelines 

Management/Verification 

A description of State actions to manage the level and/or verify producers’ 

management of pest in the plants for planting, where the pest is maintained 

below a level that can affect production, health, or marketability of plants for 

planting and cause an unacceptable economic impact to those plants. 

Where to Send a Petition 

Please send your Petitions for Federal recognition of a State-managed 

phytosanitary program for both quarantine and regulated non-quarantine pests, 

or your questions regarding the program, to FRSMP@usda.gov. 

Administrative Requirements 

USDA-APHIS-PPQ will require SPROs, to commit, in writing, the willingness 

to allocate resources necessary to implement and maintain the program. State 

Plant Regulatory Officials will identify the State’s authority by citing the 

relevant regulations. State Plant Regulatory Officials will provide a description 

of how to implement the program, such as surveys, inspections, and 

compliance agreements. 

Criteria Used to Evaluate the Petition 

Refer to Appendix D for criteria for the recognition of State-managed 

phytosanitary programs. 

Port of Entry Guidelines 

Refer to the Manual for Agricultural Clearance and the Plant Inspection 

Stations Manual. 

Quality Assurance Guidelines 

Refer to Chapter 5, Quality Assurance on page 5-1. 

Audit/Review Guidelines 

USDA-APHIS-PPQ will audit programs every three years for survey and 

monitoring in order to confirm compliance. Any non-compliance must be 

addressed appropriately. 

01/2024-25 FRSMP Program Manual 3-5 
Procedures 

Program Termination 

Program Termination 

Programs may be terminated for these reasons: 

Cancellation by States 

Noncompliance 

3-6 FRSMP Program Manual 01/2024-25 
Roles and 

Responsibilities 

Chapter 

4 

Contents 

Center for Plant Health Science and Technology (CPHST) 4-1 

Customs and Border Protection (CBP) 4-1 

Export Services (ES) 4-2 

Information Services & Manuals Unit (ISMU) 4-2 

International Phytosanitary Standards Group 4-2 

National Coordinator 4-2 

National Identification Services (NIS) 4-3 

National Operations Manager 4-3 

National Plant Board (NPB) 4-3 

Phytosanitary Issues Management (PIM) 4-3 

Plants for Planting Import and Policy 4-4 

PPQ Deputy Administrator 4-4 

PPQ Identifiers 4-4 

PPQ Officers 4-4 

Professional Development Center (PDC) 4-4 

State Plant Health Directors (SPHDs) 4-5 

State Plant Regulatory Officials (SPROs) 4-5 

Federal Collaborators 4-6 

Science and Technology (S&T) 

Share risk information as available and as requested 

Evaluate proposed pests for environmental/economic risk 

Evaluate and report on pests for the collaborative PPQ/NPB effort – 

Deregulation Evaluation of Established Pests (DEEP) process 

Review petition as OCAP member 

Recommend approval or denial 

Customs and Border Protection (CBP) 

Inspect commodities as per Manual for Agricultural Clearance (MAC) 

Process interceptions as per MAC 

Take action as per MAC 

01/2024-25 FRSMP Program Manual 4-1 
Roles and Responsibilities 

Export Services (ES) 

Export Services (ES) 

Evaluate a proposed pest for export concern 

Information Services & Manuals Unit (ISMU) 

Maintain FRSMP Program Manual 

Update MAC, Plant Inspection Stations Manual, Treatment Manual, and 

other manuals or job aids relative to FRSMP Program revisions 

International Phytosanitary Standards Group 

Collaborate on issues involving FRSMP Program and International Plant 

Protection Convention (IPPC)/North American Plant Protection 

Organization (NAPPO) 

National Coordinator 

Consultation 

Obtain information for State Plant Regulatory Official (SPRO) for a 

potential FRSMP Program pest, if contacted 

Discuss suitability for FRSMP Program with SPRO, if contacted 

Track and propose potential FRSMP Program pests whose quarantine 

status requires re-evaluation 

Work with ISMU to update FRSMP Program manual and other relevant 

manuals 

Coordinate the processing of petitions 

Review petition as Official Control Advisory Panel (OCAP) chair 

Recommend approval or denial 

Obtain and maintain audit results 

Communicate and coordinate pest and program information within PPQ, 

with other APHIS/USDA/Federal groups, and stakeholders in State 

Departments of Agriculture, industry, academia, and non-governmental 

organizations 

Coordinate with S&T and ES to determine economic and 

environmental risk categorization for potential FRSMP Program pests 

Coordinate with S&T and NIS to present pests for National Plant 

Board concurrence in the DEEP process 

Field importer questions concerning FRSMP Program as needed 

4-2 FRSMP Program Manual 01/2024-25 
Roles and Responsibilities 

National Identification Services (NIS) 

National Identification Services (NIS) 

Provide port of entry information on pests 

Consult with SPROs as requested 

Review petitions as OCAP member 

Recommend approval or denial 

Field importer questions concerning FRSMP Program as needed 

National Operations Manager 

Consultation 

Obtain information for SPRO for a potential FRSMP Program pest, if 

contacted 

Discuss suitability for FRSMP Program with SPRO, if contacted 

Review petition as Official Control Advisory Panel (OCAP) member 

Recommend approval or denial 

Oversee audit of a recognized program 

Join periodic site visits, as determined 

Review program records 

Consult with National Coordinator 

Cooperate with States on actions needed on commodities that may still be 

in foreign commerce, as per terms of the Cooperative Arrangement 

National Plant Board (NPB) 

Consultation 

Discuss/assist in evaluation of a candidate pest 

Clearing house role 

When approached by SPRO interested in a program for a pest, solicit 

interest from members 

When approached by PPQ to evaluate a pest for FRSMP Program or to 

decline to regulate, solicit interest from members 

Phytosanitary Issues Management (PIM) 

Identify trade concerns to National Coordinator for follow up 

01/2024-25 FRSMP Program Manual 4-3 
Roles and Responsibilities 

Plants for Planting Import and Policy 

Plants for Planting Import and Policy 

Review proposed and final FRSMP pest lists to determine if there are any 

impacts on PRAs/market access requests that are currently in 

development 

Determine whether actions may be needed on Pet Risk Analyses (PRAs) 

from the past (which support existing market access) 

PPQ Deputy Administrator 

Review OCAP recommendation 

Approve or deny an evaluated petition 

PPQ Identifiers 

Inform U.S. Customs and Border Protection Agriculture Specialists 

(CBPAS) or PPQ officers that pest has FRSMP Status 

Communicate to CBPAS or PPQ officers the list of participating States 

that the importer must avoid or redirect (available at http:// 

www.aphis.usda.gov/frsmp) 

Advise CBPAS or PPQ officers that CFR regulation for EAN block 16 is 

7 CFR 330.106 

PPQ Officers 

Check target shipment ID numbers when in the marketplace in relevant 

program States, as assigned by SPHD 

If target shipment ID found, issue Emergency Action Notification 

(EAN), notify SPHD 

If any inspection results in interception of a FRSMP Program pest in a 

FRSMP Program State, notify SPHD 

Professional Development Center (PDC) 

Instruct CBP participants on FRSMP Program in CBP Agricultural 

Quarantine Inspection Training 

Instruct PPQ participants on FRSMP Program in position-related training 

Instruct Federal collaborators in performing FRSMP audits and 

monitoring program compliance 

4-4 FRSMP Program Manual 01/2024-25 
Roles and Responsibilities 

State Plant Health Directors (SPHDs) 

State Plant Health Directors (SPHDs) 

Consultation 

Obtain information for SPRO for a potential FRSMP Program pest, if 

contacted 

Discuss suitability for FRSMP Program with SPRO, if contacted 

Consult with Tribal nations as needed 

Assist National Operations Manager (NOM) with audit of a recognized 

program 

Join periodic site visits, as requested 

Assist in the review of program records, as requested by Field 

Operations 

Consult with National Coordinator, as requested 

Act as Authorized Departmental Officer’s Designated Representative 

(ADODR) for the Cooperative Arrangement with program States 

Notify SPRO, Field, and National Coordinator if pest is detected by SITC 

or other PPQ field staff 

If in domestic commerce, PPQ role is ended 

Work in conjunction with Federal Collaborator as needed on 

commodities that may still be in foreign commerce, as per terms of the 

Cooperative Arrangement 

State Plant Regulatory Officials (SPROs) 

Decide what pest to consider 

Evaluate the pest for a State-managed program 

Contact Plant Protection and Quarantine (PPQ) staff for discussion or to 

request information if desired – for example: 

State Plant Health Director 

National Operations Manager 

National Identification Services 

National Coordinator for Official Control 

Consult with Regional Plant Board/National Plant Board/Tribes 

Collaborate with other SPROs 

Design a State-managed program, conscious of non-discrimination & 

equivalency requirements for material moving in foreign trade 

01/2024-25 FRSMP Program Manual 4-5 
Roles and Responsibilities 

State Plant Regulatory Officials (SPROs) 

Complete a petition 

Manage a recognized program 

Serve as or appoint Federal Collaborator 

Assure reporting requirements to PPQ are met 

Federal Collaborators 

Refer to the Statement of Work for Federal Collaborators on page A-13. 

4-6 FRSMP Program Manual 01/2024-25 
Quality Assurance Chapter 

5 

Contents 

Domestic Agricultural Quarantine Inspection (AQI) Review Process 5-1 

State Plant Health Directors (SPHDs) in FRSMP Program States Receive 

Advisory 5-1 

SPHD Delegates to Supervisor 5-1 

Supervisor Evaluates Workload 5-1 

Port of Entry AQI Review Process 5-2 

State Plant Health Directors (SPHDs) in FRSMP Program States and 

National Coordinator Receive Advisory 5-2 

National Coordinator Compares Pest ID and EAN Records 5-2 

Domestic Agricultural Quarantine Inspection (AQI) Review Process 

The Domestic AQI Review Process for the Federally Recognized Statemanaged Phytosanitary (FRSMP) Program is described below. 

State Plant Health Directors (SPHDs) in FRSMP Program 

States Receive Advisory 

1. The Data Management and Analysis Program (DMA) generates a canned 

report/advisory. 

2. The report/advisory goes to the SPHDs of States with FRSMP Programs 

for pests that have entered the U.S. The report/advisory should be 

automatically generated to all intended recipients so as not to rely on email. 

SPHD Delegates to Supervisor 

The SPHD may evaluate and assign directly or delegate that task. 

1. In cooperation with the State, the SPHD will consider the importance of the 

pest to that State. 

2. The SPHD or supervisor will consider the PPQ workload. 

Supervisor Evaluates Workload 

1. The SPHD/supervisor evaluates the workload for his/her staff. 

2. Each SPHD/supervisor in each office in each FRSMP State location makes 

an independent decision relevant to his/her particular staff. 

01/2024-25 FRSMP Program Manual 5-1 
Quality Assurance 

Port of Entry AQI Review Process 

3. The SPHD or supervisor may take into account a daily assignment that 

may be in markets or nurseries where officers could easily add on the task, 

checking the advisory in places they are already assigned. 

After evaluating staffing levels and current assignments, the supervisor will 

decide to: 

Not check for FRSMP advisory, or 

Assign the advisory to officers 

If the supervisor assigns the advisory to officers, the following considerations 

apply: 

The supervisor may assign officer to “be on the lookout” for the FRSMP 

ID information in the advisory 

The supervisor reports negative/positive result to SPHD chain and the 

FRSMP National Coordinator (simple email is satisfactory) 

A positive find requires an Emergency Action Notification (EAN) and is 

reported to the SPHD for follow-up 

The SPHD will refer the situation to the SPRO for action 

Port of Entry AQI Review Process 

The Port of Entry AQI Review Process for the Federally Recognized Statemanaged Phytosanitary (FRSMP) Program is described below. 

State Plant Health Directors (SPHDs) in FRSMP Program 

States and National Coordinator Receive Advisory 

1. The Data Management and Analysis Program (DMA) generates a canned 

report/advisory. 

2. The report/advisory goes to the SPHDs of States with FRSMP Program for 

pests that have entered the U.S. The report/advisory should be 

automatically generated to all intended recipients so as not to rely on email. 

National Coordinator Compares Pest ID and EAN Records 

1. National Coordinator compares number of Pest ID database records against 

EAN database records. 

2. National Coordinator identifies gaps between the two databases 

3. National Coordinator reviews Pest ID records and looks for notes in 

Remarks section that explain the discrepancy. 

4. National Coordinator communicates findings to the National Operations 

Manager/Postentry Quarantine (PEQ) Coordinator and the SPHD of the 

State with the FRSMP Program. 

5-2 FRSMP Program Manual 01/2024-25 
Chapter 

6 

DEEP Process Guide for 

State Plant Regulatory 

Officials 

Contents 

Introduction 6-1 

Process 6-1 

DEEP Review Pests 6-1 

When to Participate in the FRSMP Program 6-2 

Submitting Documentation 6-2 

Concurrence with Recategorization to Non-actionable at Ports of Entry 6-3 

Introduction 

The DEEP (Deregulation Evaluation of Established Pests) process is described 

in the APHIS-PPQ FRSMP Policy chapter as an alternate petition process, 

initiated by PPQ (refer to page 2-5). APHIS-PPQ is seeking to harmonize 

import and interstate commerce requirements for these pests to ensure that 

actions taken at ports of entry are consistent with actions taken domestically 

for the same pests and pathways. 

Process 

APHIS-PPQ will send DEEP reports to the National Plant Board 

approximately twice a year: in early April and early November. The National 

Plant Board will provide a port of entry report containing statistics for all 

interceptions of foreign commerce in the last 5 years. States have 60 days to 

review, respond with comments, and declare intent to petition for FRSMP, if 

applicable. The number of pests and how often we present them may vary 

based on how many qualify for the process at the time of each submission 

period. APHIS-PPQ Science and Technology’s Plant Pest Risk Analysis 

(PPRA) completes the DEEP reports and analyzes each pest’s biology, 

distribution, economic and environmental risk, and feasibility of official 

control. Additionally, APHIS-PPQ reviews reports internally, evaluates any 

trade implications, and determines if the pests meet DEEP eligibility. 

DEEP Review Pests 

DEEP review pests are pests that APHIS-PPQ has decided not to regulate 

domestically. APHIS-PPQ has made the decision not to establish regulatory 

programs for certain established pests, but they remain quarantine for a period 

01/2024-25 FRSMP Program Manual 6-1 
DEEP Process Guide for State Plant Regulatory Officials 

When to Participate in the FRSMP Program 

of time as PPQ evaluates the distribution and impact of the pests and considers 

the potential for domestic measures including FRSMP Programs. Based on the 

agriculture and economics of your state, and the feasibility of applying 

effective exclusionary measures, you may determine that a FRSMP Program is 

appropriate for your State. The FRSMP Program Manual contains guides to 

assist you in determining if a FRSMP Program is the right choice for your 

State. Refer to Appendix E – Analysis Aid for States. States should declare 

intent to petition for a FRSMP Program within the 60-day response period of 

the DEEP review. States will have an open period of 12 months to formally 

petition for a FRSMP Program. During the petitioning process, the pest(s) of 

concern will remain quarantine at ports of entry. 

When to Participate in the FRSMP Program 

A major consideration whether the FRSMP Program is right for your State is 

whether a particular pest is ever detected at ports of entry. The benefit States 

receive from participating in the FRSMP Program is protection at ports of 

entry. Unless that benefit is realized, it may not behoove States to 

inconvenience themselves with the extra requirements and expense of the 

FRSMP Program. Alternativey, States may wish to independently establish 

external quarantines to address any potential domestic pathways. 

Submitting Documentation 

If the State believes APHIS-PPQ overlooked critical information in the 

decision not to regulate a DEEP review pest, States should submit 

documentation for further consideration. If the State is presented with a DEEP 

review for a pest that it believes is incomplete or incorrect, send PPQ specific 

comments and documentation to support a revision and reassessment. 

6-2 FRSMP Program Manual 01/2024-25 
DEEP Process Guide for State Plant Regulatory Officials 

Concurrence with Recategorization to Non-actionable at Ports of Entry 

Concurrence with Recategorization to Non-actionable at Ports of 

Entry 

When you review the port of entry interception statistics and DEEP reports, 

you will see among other things how often a pest is detected in foreign 

commerce. If your state is under no risk from this foreign pathway, you may 

concur with the re-categorization to non-quarantine. You may then wish to 

establish or continue your domestic quarantine for the pest. If the pathway 

changes and federal agents begin to detect the pest in foreign commerce, you 

may decide to petition for the FRSMP Program. Again, refer to page E-2 for 

further guidance on interpreting these statistics. 

Federal Register Notice dated 11/13/2013 Docket 2013-27132 

Refer to the Federal Notice Evaluation of Established Plant Pests for Action at 

Ports of Entry for detailed information. 

01/2024-25 FRSMP Program Manual 6-3 
DEEP Process Guide for State Plant Regulatory Officials 

Concurrence with Recategorization to Non-actionable at Ports of Entry 

6-4 FRSMP Program Manual 01/2024-25 
Forms, Worksheets, and Templates 

Appendix 

A Appendix A 

Contents 

USDA/APHIS National Plant Board Federally Recognized State-managed 

Phytosanitary Program Petition Worksheet A-2 

FRSMP Cooperative Arrangement Template A-5 

Statement of Work for Federal Collaborators A-13 

PPQ Form 518, Report of Violation A-15 

PPQ Form 523, Emergency Action Notification A-16 

01/2024-25 FRSMP Program Manual A-1 
 

 

Appendix A 

USDA/APHIS National Plant Board Federally Recognized State-managed Phytosanitary Program Petition Worksheet 

USDA/APHIS National Plant Board Federally Recognized Statemanaged Phytosanitary Program Petition Worksheet 

Scientific Name: 

Order/Family: 

Common Name(s): 

Synonym(s): 

Domestic distribution (may collaborate with PPQ on this section): 

Provide a list of States where your pest occurs in States in the United States. Use the IPPC 

definition of establishment, which is: “Perpetuation, for the foreseeable future, of a pest within 

an area after entry [FAO, 1990; revised FAO, 1995; IPPC, 1997; formerly established].” 

Provide references. 

Potential pathways of introduction (may collaborate with PPQ on this section): 

Provide information on any means (e.g., importation of a host, interstate trade, smuggling, 

natural spread, a hurricane) that would allow the continued introduction of the pest into the 

State, or further facilitate the pest’s introduction to the State. 

Provide references. 

Foreign Pathway (material intercepted as general or permit cargo) 

Host Imported as Origin Quantity Destination 

State 

Consumption 

or Propagation 

Domestic Pathway 

Host Imported as State of Origin Notations 

Data to determine federal inspection equivalence 

Does a phytosanitary certificate requirement exist, which exceeds a 1-2% port of entry 

inspection rate? 

If not, provide evidence of interstate inspections to equal or exceed 1-2% 

Inspection rates 

Infested States # Shipments 

Host 1 # Inspections # Shipments 

Host 2, etc. # Inspections Total # 

Inspections 

A-2 FRSMP Program Manual 01/2024-25 
Appendix A 

USDA/APHIS National Plant Board Federally Recognized State-managed Phytosanitary Program Petition Worksheet 

Potential economic/environmental impacts (may collaborate with PPQ on this section): 

Provide a list of hosts that are of importance to your State. 

Describe the potential economic and/or environmental impacts as they apply to your State, 

including the economic value of impacted crops and host acreage. Check the National 

Agricultural Statistics Service for the Latests U.S. value of production. 

Consider the following questions for economic impact: 

Is the pest likely to attack federally listed threatened or endangered plants? Check the U.S. 

Fish and Wildlife Service’s Threatened and Endangered Species System (TESS). 

Is the pest likely to reduce or eliminate a native plant that plays a major role in maintaining 

or defining a native ecosystem (i.e., a keystone species)? Refer to ISMP No. 5 Supplement 

No. 2 of the IPPC Glossary of Phytosanitary Terms (Attachment 1) and section 2.3 of ISPM 

No. 11 (Attachment 2) for further guidance. 

Provide references. 

Host Crop Acreage Value 

Regulatory Program Workplan: This section will be incorporated into Appendix A of the 

Cooperative Arrangement between APHIS and the State upon recognition of your petition. 

01/2024-25 FRSMP Program Manual A-3 
 

Appendix A 

USDA/APHIS National Plant Board Federally Recognized State-managed Phytosanitary Program Petition Worksheet 

Workplan 

Exterior Quarantine 

 Cite State statute and summarize 

Interstate Inspection 

 Phyto requirements 

 Audit protocol 

 Inspection protocol 

 Inspection sites: entry points, fields, distributions centers, etc. 

 Quality Assurance activity 

Surveillance 

Traps Field/Commodity Inspections Other 

 Response plan if pest is detected 

Annual Reporting: Summary of activities/results 

(e.g. number of interstate shipments inspected; number of interstate shipments mitigated for the pest; what mitigation 

was used. Examples for Surveillance: number traps set, number traps set in counties bordering infested areas, number 

visual inspections, results) 

State/local/Tribal phytosanitary regulations: 

Provide a copy of the State/local/Tribal mandatory quarantine regulations associated with pest 

management programs, testing protocols (if applicable), and other related actions recently taken 

to maintain pest freedom or contain pest distribution for the specific pest in this FRSMP 

petition. 

If no State/local/Tribal regulations are currently in place, what steps are being taken to establish 

State-based regulations? 

Funding statement: Indicate your source of funding for program activities. 

Author(s): Type the names of all authors, contact information such as phone number and email, and 

their affiliation. 

A-4 FRSMP Program Manual 01/2024-25 
Appendix A 

FRSMP Cooperative Arrangement Template 

FRSMP Cooperative Arrangement Template 

XX-XXXX-XXXX-AT 

NOTICE OF COOPERATIVE ARRANGEMENT 

BETWEEN THE 

(Insert State Agency Name) 

AND THE 

UNITED STATES DEPARTMENT OF AGRICULTURE (USDA) 

ANIMAL AND PLANT HEALTH INSPECTION SERVICE (APHIS) 

PLANT PROTECTION AND QUARANTINE (PPQ) 

ARTICLE 1 –PURPOSE 

The purpose of this Cooperative Arrangement is for APHIS-PPQ to formally provide 

Federal recognition of [Insert State Agency name]’s State-managed phytosanitary 

program for the control of all pests listed in Appendix A of this Arrangement, and to 

delegate authority to [Insert State Agency Name] as a Federal collaborator to assist the 

USDA, APHIS in the administration and enforcement of such federal laws to restrict the 

entry and movement of foreign commerce infested with such federally recognized pest(s). 

APHIS-PPQ and [Insert State Agency name] intend to collaborate to ensure that 

equivalent mitigation measures are applied to agricultural imports and domestic regulated 

articles for the purpose of harmonization of both domestic and international commerce 

into and throughout the United States. 

For the purpose of providing Federal authority to the [Insert State Agency name] to act as a 

Federal collaborator(s) pursuant to the Talmadge-Aiken Act of 1962 (7 U.S.C. 450), and as a 

Federal collaborator, to take official action on the movement of foreign commerce moving into 

or throughout the State of [Insert State name], this Cooperative Arrangement delegates the 

following specific USDA, APHIS-PPQ authorities, namely, sections 414, and 422 of the Plant 

Protection Act, 7 U.S.C. § 7701 et seq. (PPA) and the specific APHIS safe guarding regulations 

promulgated thereunder to such Federal collaborator(s) as described in this Arrangement. 

ARTICLE 2 - BACKGROUND 

APHIS-PPQ has implemented a program for the Federal Recognition of State Managed 

Phytosanitary (FRSMP) programs which establishes a process for States to petition APHIS-PPQ 

for Federal recognition of State-managed phytosanitary programs developed to exclude, 

eradicate or contain plant pests of limited distribution within the United States that APHIS is not 

currently regulating or is considering to no longer regulate under a Federal program. 

Once a State-managed phytosanitary program for a particular plant pest receives Federal 

recognition, USDA, APHIS and the U.S. Department of Homeland Security, Customs and 

Border Control (CBP) may continue to or may begin to take Federal control actions at the United 

States ports of entry if this plant pest is intercepted in a consignment of imported goods. The 

Page 1 of 8 

Figure A-1 FRSMP Cooperative Arrangement Template (page 1) 

01/2024-25 FRSMP Program Manual A-5 
Appendix A 

FRSMP Cooperative Arrangement Template 

Federal collaborator, in partnership with APHIS-PPQ, will be authorized to take official action 

on a pest interception within its State using the authority provided under this Arrangement and 

the PPA. 

ARTICLE 3 - AUTHORITIES 

Under the Talmadge-Aiken Act (7 USC § 450), the Secretary of Agriculture may enter into 

cooperative arrangements with States, in order 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, to assist the Secretary in the 

administration and enforcement of such Federal laws and regulations to the extent and in the 

manner deemed appropriate in the public interest. 

Under the Plant Protection Act, as amended, (7 USC §§ 7701 et. seq.) (PPA), the Secretary of 

Agriculture is authorized to issue regulations and orders to prevent, detect, control, eradicate, 

suppress, or retard the spread of plant pests or noxious weeds into or within the United States and 

to cooperate with other Federal agencies or entities, States or political subdivisions of States, 

national governments, local governments of other nations, domestic or international 

organizations, domestic or international associations, and other persons to carry out the purposes 

of the PPA. 

ARTICLE 4 – DELEGATION OF LIMITED AUTHORITIES 

USDA, APHIS-PPQ delegates to the [Insert State Agency name] the authority to control the 

movement of FRSMP program pests listed in Appendix A within the State of [Insert State name] 

and to hold, seize, quarantine, treat, apply other remedial measures to destroy, or otherwise 

dispose of the FRSMP program pests as authorized under section 414 of the PPA and to gather 

and compile information and conduct any investigations considered necessary for the 

enforcement of the PPA under section 422. APHIS does not confer any authority under the PPA 

not specifically referenced in this Cooperative Arrangement, nor does it confer any authority 

under any other statute administered by USDA, APHIS, including the authority to establish and 

collect fees. 

ARTICLE 5 –STATE RESPONSIBILITIES 

The State agrees to/that: 

1. (a) Designate, in writing, a mutually agreeable authorized State representative (State 

Representative) who shall be responsible for collaboratively administering the activities 

conducted under this Arrangement. 

(b) Notify APHIS-PPQ in writing if the State Representative vacates his/her position. 

(c) The State Representative will designate authorized State employees to assist in the 

administration of activities under this Arrangement. 

Page 2 of 8 

Figure A-2 FRSMP Cooperative Arrangement Template (page 2) 

A-6 FRSMP Program Manual 01/2024-25 
Appendix A 

FRSMP Cooperative Arrangement Template 

(d) Ensure the State Representative and the designated authorized State employees 

comply with the requirements under this Arrangement, the PPA and the regulations 

promulgated thereunder. 

2. (a) Comply with all activities outlined within [Insert State Agency name]’s Detection and 

Control Plan(s), attached herein as Appendix B, corresponding with each pest listed in 

Appendix A. 

(b) Have a regulatory quarantine and program in place to maintain freedom or limited 

distribution of pests listed in Appendix A, or have the commitment and capability to 

enact, implement, and enforce a regulatory quarantine and implement a regulatory 

program against such pests in a timely manner. 

(c) Submit annual reports to the National Coordinator for Official Control at [Insert 

appropriate APHIS, PPQ Address] of APHIS-PPQ. The annual reports shall include 

information indicating the program’s effectiveness as it relates to areas of phytosanitary 

management ranging from pest monitoring and detection, diagnostics and identification, 

regulatory activity, and control measures, including, but not limited to: 

i. A description of the type of inspection or testing process used; 

ii. A listing of the type and quantity of material inspected; 

iii. An account of the origin of the material inspected and the name of person 

inspecting; and 

iv. A report on the location, date, and results of inspection or testing. 

(d) Confer with APHIS, PPQ regarding authorized treatments available for each 

FRSMP pest listed in Appendix A. Only APHIS-PPQ authorized treatments shall 

be administered on FRSMP managed pests. If applying remedial measures to an 

intercepted infestation of a FRSMP pest, apply the least drastic action that is 

feasible and would be adequate to prevent the dissemination of the pest. 

(e) Use the APHIS-PPQ form 523, Emergency Action Notification as appropriate 

in order to take authorized remedial action under the PPA when the State FRSMP 

pest is detected during phytosanitary activities. An authorized State employee 

will provide the completed form to the [Insert State name] APHIS, PPQ Plant 

Health Director by the close of business of the following business day. 

(f) Use the APHIS-PPQ form 518, Report of Violation to document violations of 

the PPA for unauthorized movement of FRSMP managed pests into or within 

[Insert State name]. An authorized State employee should collect statements, 

photographs, and any other physical evidence appropriate to properly document 

the violation. 

Page 3 of 8 

Figure A-3 FRSMP Cooperative Arrangement Template (page 3) 

01/2024-25 FRSMP Program Manual A-7 
 

 

Appendix A 

FRSMP Cooperative Arrangement Template 

(g) Promptly forward all documentation to APHIS-PPQ, including, but not 

limited to, the completed Form 518, an inspector’s statement, photographs and 

other physical evidence, and any and all other information collected or produced 

by the State regarding the violation. 

(h) Ensure all authorized State employees and the State Representative are 

available for purposes of Federal enforcement actions for FRSMP program 

violations, including, but not limited to, permitting State employees to assist 

USDA and/or the U.S. Department of Justice in any civil or criminal action 

against a violator, being available for and providing testimony, participating in 

hearing preparations, providing documentation for investigatory and hearing 

purposes, and any other activity for purposes of legal enforcement of the FRSMP 

program. 

(i) Allow APHIS-PPQ to periodically inspect the State performance under the 

Federal delegations provided by this Cooperative Arrangement to determine 

compliance with approved [Insert State name] Detection and Control Plan(s) and 

the requirements under the PPA and the regulations promulgated thereunder. 

(j) Provide all requested information for purposes of APHIS-PPQ’s audit requirements. 

(k) When connected to the USDA, APHIS network, comply with the security 

guidelines as outlined in the USDA Departmental Manual 3140-001, 

“Management ADP Security Manual; APHIS Directive 3140.2, “APHIS 

Electronic Mail and Security and Privacy Policy”; APHIS Directive 3140.3, 

“APHIS Internet Use and Security Policy”; and APHIS Directive 3140.5, “APHIS 

Information Systems Roles and Responsibilities”. The [Insert State agency here] 

will not download any material bearing a copyright (e.g., pictures, movies, or 

music files) nor access any material defined as inappropriate in these regulations 

and directives. 

ARTICLE 6 – APHIS RESPONSIBILITIES 

APHIS-PPQ agrees to/that: 

1. Designate, in writing, an APHIS-PPQ Authorized Representative who shall be 

responsible for collaboratively administering the activities conducted under this Arrangement. 

2. Conduct periodic site inspections/reviews of [Insert State Agency name]’s phytosanitary 

programs and FRSMP activities conducted under this Arrangement. 

3. Every three (3) years, conduct audits of [Insert State Agency name]’s phytosanitary 

program(s) for the FRSMP program pest(s) authorized under this Arrangement. 

4. Collect and review annual reports provided by the [Insert State Agency name] on FRSMP 

pest program activities and accomplishments. 

Page 4 of 8 

Figure A-4 FRSMP Cooperative Arrangement Template (page 4) 

A-8 FRSMP Program Manual 01/2024-25 
 

Appendix A 

FRSMP Cooperative Arrangement Template 

5. Collaborate with the State Representative on legal enforcement actions 

documented by the [Insert State Agency name] for violations under the FRSMP program. 

ARTICLE 7 -MUTUAL RESPONSIBILITIES 

The State and APHIS-PPQ mutually agree to/understand that: 

1. Mutually satisfactory Detection and Control Plan(s) developed by the State and APHIS 

for each agreed upon pest are incorporated into this Arrangement by reference and attached as 

Appendix B. 

2. All State employees conducting remedial actions under this Cooperative Arrangement 

MUST be trained on, be familiar with, and have a working knowledge of the delegated PPA 

regulatory authorities for the FRSMP program. APHIS-PPQ will provide such training materials 

necessary regarding the PPA, the applicable regulations and all additional information necessary 

for purposes of complying with the terms of this Arrangement. The State Representative and 

State employees acting under this Arrangement must use all training material provided by 

APHIS for purposes of conducting proper training under this Arrangement. 

ARTICLE 8 - DATA SHARING AND RESPONSIBILITIES 

1. Data to be Shared: The Parties to this Arrangement agree to provide plant protection and 

quarantine data to each other. The data to be provided to each Party by the other Party includes, 

but is not limited to, plant protection and quarantine surveys, diagnostic information, detection 

activities, inspection reports, and pest interception data. Each Party is responsible for 

transmitting the provided data to its own authorized employees, cooperators, and contractors as 

applicable and necessary, in order to carry out responsibilities under their respective plant health 

authorities. Each Party agrees that it will ensure, to the extent provided by applicable laws and 

regulations, that data provided by the other party is not released to anyone that is not authorized 

to receive it. 

2. Data Utilization: The Parties agree that the provided data will only be used in the 

administration and enforcement of each Party’s respective plant health laws and regulations. 

Data provided by the parties under this Cooperative Arrangement may be used to ensure 

compliance with their respective plant health laws and regulations; to respond to domestic plant 

pest and disease emergencies, interceptions, and trace backs; to enhance delivery of pest 

exclusionary programs and activities; to support pest surveying activities; to develop quarantines 

and other appropriate measures for pest management and mitigation; to implement or improve 

international pre-clearance and/or pest eradication programs and activities, pest risk assessments, 

phytosanitary trade support, and the issuance of plant protection and quarantine permits; and to 

develop, in cooperation with Federal research agencies, new and improved methods, techniques 

and procedures for use in cooperative plant protection and quarantine programs and activities. 

Each party agrees that it will ensure that the provided data is used only for purposes specified in 

this Arrangement and only in a manner consistent with the provisions of the Plant Protection Act. 

Page 5 of 8 

Figure A-5 FRSMP Cooperative Arrangement Template (page 5) 

01/2024-25 FRSMP Program Manual A-9 
Appendix A 

FRSMP Cooperative Arrangement Template 

3. Data Restrictions: The State agrees and acknowledges that the data provided by APHIS 

pursuant to this Cooperative Arrangement is solely APHIS data and as such is or may be subject 

to the confidentiality provisions of Section 1619 of the Food, Conservation, and Energy Act of 

2008, 7 USC § 8791, (Section 1619) and the Privacy Act of 1974 and also agrees to safeguard 

such confidentiality and prohibit any unauthorized access to the data provided by APHIS as 

required by Section 1619. The State further agrees and acknowledges that if Section 1619 does 

apply to some or all of the APHIS provided data, that pursuant to Section 1619, the State is 

bound to and will comply with Section 1619 (copy attached as Appendix C) and related APHIS 

guidance. The State understands that it may not release any of the data provided by APHIS since 

it is Federal Government data and it agrees to refer any and all requests for the data provided by 

APHIS, not otherwise authorized to be released under this Cooperative Arrangement and 

applicable Federal laws and regulations, to: 

USDA, APHIS 

Legislative and Public Affairs 

Freedom of Information and Privacy Act Office 

4700 River Rd. Unit 50, Riverdale, MD 20737 

Telephone: (301) 851-4102 

Additionally, the State agrees that it will, if requested by APHIS, enter into a separate written 

Arrangement with APHIS to protect from release or disclosure any data provided by APHIS that 

is subject to Section 1619. 

ARTICLE 9 – STATEMENT OF NO FINANCIAL OBLIGATION 

1. This Arrangement defines the basis on which the Parties will cooperate, and does not 

constitute a financial obligation or serve as a basis for incurring expenditures. Each Party is 

solely responsible for providing all salaries, equipment, and other requirements and needs for its 

respective employees and must handle and expend its own funds. Any and all expenditures from 

Federal funds by APHIS made in conformity with activities conducted under this Arrangement 

must be in compliance with USDA rules and regulations, and in each instance based upon 

appropriate financial documentation. Expenditures made by the [Insert State Agency name] will 

be in accordance with its laws and regulations. 

2. The responsibilities assumed by each of the cooperating Parties are contingent upon funds 

being available from which the expenditures legally may be made. 

3. Activities conducted under this Cooperative Arrangement that may result in exchange, 

transfer, reimbursement, off-setting, or any other means of moving funds from one Party to the 

other are not authorized under the terms of this Arrangement. All such activities shall be 

documented and supported by separate financial documentation in compliance with all 

applicable Federal and State laws and regulations. 

4. This Arrangement and any continuation thereof shall be contingent upon the availability 

of funds appropriated by the Congress of the United States. It is understood and agreed that any 

monies allocated for purposes covered by this Arrangement shall be expended in accordance 

Page 6 of 8 

Figure A-6 FRSMP Cooperative Arrangement Template (page 6) 

A-10 FRSMP Program Manual 01/2024-25 
Appendix A 

FRSMP Cooperative Arrangement Template 

with its terms and the manner prescribed by the fiscal regulations and/or administrative policies 

of the party making the funds available. 

ARTICLE 10 - LIMITATIONS OF AUTHORITY 

Authority conveyed under this Arrangement authorizing Federal collaborator status is limited to 

the pests identified in Appendix A of this Cooperative Arrangement and the attached Detection 

and Control Plan(s) in Appendix B. If other pests are intercepted, the State agrees not to act 

under this conveyed Federal authority and will notify APHIS-PPQ to determine if Federal action 

is necessary and appropriate. 

ARTICLE 11 - NO PRIVATE RIGHT OF ACTION CREATED 

This intra-governmental Cooperative Arrangement is not intended to and does not create or 

confer any rights, privileges, or benefits for any private person or party. 

ARTICLE 12- LIABILITIES 

APHIS assumes no liability for any actions or activities conducted by a State and its employees 

under this Cooperative Arrangement except to the extent the recourse or remedies are provided 

by Congress under the Federal Tort Claims Act (28 U.S.C. 1346(b), 2401(b), 2671-2680). 

ARTICLE 13 - SEVERABILITY CLAUSE 

Nothing in this Cooperative Arrangement is intended to conflict with current laws or regulations 

or the directives of USDA. If a term of this Arrangement is inconsistent with such authority, then 

that term shall be invalid, but the remaining terms and conditions of this agreement shall remain 

in full force and effect. 

ARTICLE 14 – MISCELLANEOUS 

1. The Parties to this Cooperative Arrangement shall comply with all Federal statutes, 

regulations, and directives relating to nondiscrimination and that may apply to the cooperative 

activities conducted under the auspices of this Arrangement. 

2. No member of or delegate to Congress or resident commissioner shall be admitted to any 

share or part of this Arrangement or to any benefit to arise there from, unless it be made with a 

corporation for its general benefit. 

ARTICLE 15 – DURATION AND AMENDMENTS 

This Cooperative Arrangement shall become effective upon the date of final signature, and shall 

remain in effect for 5 years. This Arrangement and its attached Appendices A and B may be 

modified, amended or renewed upon mutual agreement of the Parties in writing. State’s requests 

for modification of a Detection and Control Plan in Appendix B shall be submitted, in writing, to 

APHIS-PPQ for consideration not less than 30 days in advance of the desired effective date, 

unless otherwise authorized by both Parties. 

Page 7 of 8 

Figure A-7 FRSMP Cooperative Arrangement Template (page 7) 

01/2024-25 FRSMP Program Manual A-11 
__________________________________________________ 

___________________________________________________ 

Appendix A 

FRSMP Cooperative Arrangement Template 

ARTICLE 16 - TERMINATION 

State participation in the FRSMP Program may be terminated, effective immediately, if one of 

the following conditions occurs: 

1. State requests to withdraw from the FRSMP program; 

2. Failure to submit annual reports; 

3. Failure to pass an APHIS-PPQ audit; 

4. Failure to act within the limited delegated authority of the PPA; 

5. Failure to restrict the limited delegated authority to FRSMP program pest(s); or 

6. Any other violation(s) of this Arrangement. 

Upon notice of termination by APHIS-PPQ Deputy Administrator, the State may request 

reconsideration of the termination decision through the FRSMP Coordinator, with copy to their 

designated APHIS contact. The final termination decision by APHIS-PPQ Deputy Administrator 

shall have no delegation of legal rights to appeal such decision. 

(Insert State Agency Name) 

Type Name/Title of Signatory Date 

UNITED STATES DEPARTMENT OF AGRICULTURE, 

ANIMAL AND PLANT HEALTH INSPECTION SERVICE, 

PLANT PROTECTION AND QUARANTINE 

Type Name/Title of Signatory Date 

Page 8 of 8 

Figure A-8 FRSMP Cooperative Arrangement Template (page 8) 

A-12 FRSMP Program Manual 01/2024-25 
Appendix A 

FRSMP Cooperative Arrangement Template 

Statement of Work for Federal Collaborators 

Introduction 

Federal Collaborators are individuals who have specialized plant health skills 

that APHIS requires to complete specialized program activities, complete 

APHIS training, or perform APHIS-sanctioned duties. The Plant Protection 

Act of 2000 (PPA) authorizes the Secretary 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. APHIS 

does not pay the Federal Collaborator a salary, but may compensate for travel 

and other expenses. The activities being performed may be covered by a 

Memorandum of Understanding, Cooperative Agreement, Cooperative 

Arrangement, work plan or other agreement instrument between APHIS and 

the State or Tribe. Assignments are characterized by requirements for a 

thorough working knowledge and alertness to potentially harmful pests and 

plants; the exercise of judgment and experience involved in the application and 

interpretation of rules, regulations, and laws in recommending or determining 

courses of action. 

Duties 

The incumbent provides effective cooperation between parties to protect the 

nation’s agricultural, horticultural, timber, plant, and other resources from 

damage caused by plant pests or noxious weeds. For example: 

1. Defines roles and responsibilities of the parties in the inspection and 

monitoring of post-entry quarantine sites and the monitoring and 

enforcement of importer compliance with post-entry quarantine 

requirements. 

2. Defines roles and responsibilities of the parties in the monitoring and 

enforcement of importer compliance with Federally Recognized Statemanaged Phytosanitary Program requirements. 

3. Cooperatively participates in the performance of phytosanitary export 

certification of plant and plant products. 

4. Establishes harmonized standards to control the spread of disease through 

State certification programs for seed potatoes. 

5. Participates in PPQ Federal Pesticide Certification Plan to purchase and 

apply restricted use pesticides. 

6. Participates in activities such as military preclearance, pest survey 

activities and weed eradication activities. 

May perform in a temporary duty capacity duties similar to those described 

above in connection with Emergency Programs operations. 

01/2024-25 FRSMP Program Manual A-13 
Appendix A 

FRSMP Cooperative Arrangement Template 

The incumbent has wide latitude for planning and scheduling the assigned 

work. PPQ may review work by occasional spot checks, and review of work 

reports submitted by the incumbent. 

Interagency contacts typically include the staff officers, and pest management 

professionals within PPQ. Contacts also include officials in other Federal 

agencies, State, County, Tribal, and local officials, extension personnel, high 

ranking State department and agricultural administrators, organized farm 

groups, individual farm owners, cooperators, stakeholders, contractors, and 

others in similar positions in related agencies or in private groups. 

Other Considerations 

Authorities for this position are 5 CFR 213.2012(k), 5 CFR 213.104 and 7 

USC 2225. 

This statement of work cites the primary and typical but not all-inclusive duties 

of the position. 

A-14 FRSMP Program Manual 01/2024-25 
 

 

 

 

 

Appendix A 

PPQ Form 518, Report of Violation 

PPQ Form 518, Report of Violation 

Clear Form 

According to the Paperwork Reduction Act of 1995, an agency may not conduct or sponsor, and a person is not required to respo nd to, a collection 

of information unless it displays a valid OMB control number. The valid OMB control number for this information collection is 0579-0088. The time 

required to complete this information collection is estimated to average 1 hour per response, including the time for reviewing instructions, searching 

existing data sources, gathering and maintaining the data needed, and completing and reviewing the collection of information. 

OMB Approved 

0579-0088 

EXP: 02/2020 

U.S. DEPARTMENT OF AGRICULTURE 

ANIMAL AND PLANT HEALTH INSPECTION SERVICE 

PLANT PROTECTION AND QUARANTINE 

REPORT OF VIOLATION 

VIOLATION NO. 

1. DATE VIOLATION DISCOVERED 2. VIOLATED REGULATION OR COMPLIANCE 

AGREEMENT 

3. WHERE INTERCEPTED (city or port, and state; also county if 

domestic) 

4. ORIGIN OF ARTICLE (include county, if 

domestic) 

5. ARTICLE MOVED IN VIOLATION OF 

REGULATIONS 

6. IDENTITY OF ARTICLE (Serial No., Waybill No., Description, 

etc.) 

7. NAME AND BUSINESS ADDRESS OF VIOLATOR (shipper, caterer, cleaner, garbage handler, 

servicing agent, broker, ship's agent, etc. Identify which.) 

8. VIOLATOR HAD 

COMPLIANCE PERMIT? AGREEMENT? YES NO YES NO 

9. IF NO, WAS VIOLATOR AWARE OF REGULATION? 

YES NO UNKNOWN 

IF "YES,"HOW INFORMED AND WHEN? 

10. NAME AND BUSINESS ADDRESS OF 

CARRIER 

11. WAS CARRIER AWARE OF REGULATION? 

YES NO UNKNOWN 

IF "YES," HOW INFORMED AND WHEN? 

12. IDENTITY OF CARRIER 

PLANE AIRCRAFT NUMBER FLIGHT NUMBER 

SHIP FLAG NAME 

13. NAME AND BUSINESS ADDRESS OF CONSIGNEE 

ROAD VEHICLE LICENSE NUMBER 

14. DISPOSITION OF PEST RISK (i.e., articles named in Item 5 were fumigated, destroyed, 

etc.) 

15. REMARKS (attach additional sheet, if needed) 

16. VIOLATOR OR CARRIER'S STATEMENT OF VIOLATION (attach additional sheet, if needed. Identify who gave 

statement.) 

17. OFFICER'S STATEMENT: The officer must attach a detailed, signed, and dated statement stating how the action violated the regu lations or compliance agreement cited in Item 2. It must fully 

describe the facts of the violation from discovery through disposition of pest risk including when, who, what, and where. 

18. SIGNATURE OF INITIATING OFFICER 19. PRINTED NAME OF OFFICER AND WORK 

UNIT 

20. DATE REPORT COMPLETED 

21. OFFICER IN CHARGE COMMENTS (attach additional sheet, if needed) 

LIST PREVIOUS VIOLATIONS 

RECOMMENDATIONS 

22. SIGNATURE OF OFFICER IN CHARGE 23. PRINTED NAME OF OFFICER IN CHARGE AND WORK 

UNIT 

24. DATE SIGNED 

PPQ FORM 518 

MAR 2019 

Figure A-9 Example of PPQ Form 518, Report of Violation 

01/2024-25 FRSMP Program Manual A-15 
Appendix A 

PPQ Form 523, Emergency Action Notification 

PPQ Form 523, Emergency Action Notification 

Figure A-10 Example of PPQ Form 523, Emergency Action Notification 

A-16 FRSMP Program Manual 01/2024-25 
Appendix 

B Appendix B 

Federally Recognized State-managed 

Phytosanitary Programs/Links to State Program 

Websites 

Links 

Potato/Tomato | Psyllid, Bactericera cockerelli (Florida) 

Bagrada Bug | Bagrada hilaris (Florida) 

Allium leafminer | Phytomyza gymnostoma (Oregon) 

Allium Leafminer | Phytomyza gymnostoma Loew (California) 

01/2024-25 FRSMP Program Manual B-1 
Appendix B 

Links 

B-2 FRSMP Program Manual 01/2024-25 
Official Control Advisory Panel Charter 

Appendix 

C Appendix C 

Contents 

Article I—Preamble C-1 

Article II—Definitions C-2 

Article III—Purpose C-3 

Article IV—PPQ Policy for Recognizing State-managed Phytosanitary 

Programs C-4 

Article V— Panel Members C-4 

Section 1. Panel Members C-4 

Section 2. General Duties C-4 

Section 3. Eligibility C-5 

Section 4. Officer Designated Alternates C-5 

Article VI—Operations C-5 

Article VII—Meetings C-5 

Article VIII—Quorum C-5 

Decision Making C-5 

Last Revision C-6 

Article I—Preamble 

APHIS-PPQ’s Federally Recognized State-managed Phytosanitary (FRSMP) 

Program is an administrative mechanism that addresses the application of 

phytosanitary procedures for plant pests that are not widely distributed in the 

country and that APHIS-PPQ does not regulate. It includes “Official Control” 

which the International Plant Protection Convention (IPPC) defines as “the 

active enforcement of mandatory phytosanitary regulations and the application 

of mandatory phytosanitary procedures with the objective of eradication or 

containment of quarantine pests or for the management of regulated non 

quarantine pests.” The FRSMP Program also applies to State-managed 

exclusion programs when an endangered State protects itself from the domestic 

introduction of a pest established in another state. 

As a member of the World Trade Organization (WTO) the U.S. agrees to 

observe the provisions of WTO agreements, including the Agreement on the 

Application of Sanitary and Phytosanitary Measures (the SPS Agreement). 

APHIS-PPQ is the U.S. Agency with primary responsibility for the 

implementation of phytosanitary measures. As such, PPQ is also responsible 

for provisions of the Agreement related to phytosanitary measures, including 

those implemented in the U.S. by other than the national government. PPQ’s 

01/2024-25 FRSMP Program Manual C-1 
Appendix C 

Article II—Definitions 

role in this regard is to ensure that these entities comply with relevant 

provisions of the Agreement and do not take measures which are, directly or 

indirectly, inconsistent with the provisions of the Agreement. Further 

clarification of the role of PPQ under the SPS Agreement is provided by the 

International Plant Protection Convention (IPPC) and associated international 

standards. The IPPC is specifically identified by the SPS Agreement as holding 

the responsibility for standard setting associated with phytosanitary measures. 

Under the IPPC’s International Standards for Phytosanitary Measures (ISPM) 

No. 5, Supplement No.1, a national government or a National Plant Protection 

Organization (NPPO) should establish or recognize Official Control under 

appropriate legislative authority. The national government or NPPO should 

perform, manage, supervise, or at minimum, audit/review the Official Control 

program and ensure its enforcement. Agencies other than the NPPO may be 

responsible for aspects of official control programs, and certain aspects of 

official control programs may be the responsibility of sub-national authorities. 

In furtherance of APHIS-PPQ’s commitment to ISPM No. 5 and the WTO SPS 

Agreement, the Agency has worked cooperatively with the plant pest 

regulatory agencies of each of the States and Territories, as well as the National 

Plant Board (NPB), to develop guidelines for the Agency's recognition of 

State-level phytosanitary management activities, such as State-managed 

official control programs in conformity with international guidelines. In 

support of this effort, APHIS-PPQ has established the Official Control 

Advisory Panel (OCAP) to identify, maintain, and, when necessary, update 

criteria used by the Agency and States to determine which pests are appropriate 

for the FRSMP Program and whether State-level actions are sufficient to be 

recognized by the Agency in its capacity as NPPO. To that end, this Charter 

establishes the purpose and associated roles and responsibilities of the OCAP 

in support of the Federally Recognized State-managed Phytosanitary Program. 

This Charter is a living document that is open for revision as determined 

necessary by OCAP consensus. 

Article II—Definitions 

Official Control. The active enforcement of mandatory phytosanitary 

regulations and the application of mandatory phytosanitary procedures with 

the objective of eradication or containment of quarantine pests or for the 

management of regulated non-quarantine pests [ISPM No. 5]. 

Quarantine Pest. A pest of potential economic importance to the area 

endangered thereby and not yet present there, or present but not widely 

distributed and being officially controlled [FAO, 1990; revised FAO, 1995; 

IPPC 1997]. 

C-2 FRSMP Program Manual 01/2024-25 
Appendix C 

Article III—Purpose 

Regulated Nonquarantine Pest. A nonquarantine pest whose presence in 

plants for planting affects the intended use of those plants with an 

economically unacceptable impact and which is therefore regulated within the 

territory of the importing contracting party [IPPC 1997]. 

Sponsor. Individual or entity that organizes and is committed to the 

development of a product, program or project. For the FRSMP Program, the 

sponsor is responsible for coordinating and leading communication and 

planning among interested SPROs. The initiating SPRO may sponsor the final 

petition or defer that role to another participating SPRO. The sponsoring State 

will be identified in the title of the program - i.e. The Federally Recognized 

State-managed Phytosanitary Program for “Pest A” Sponsored by the State of 

“B.” 

Article III—Purpose 

To obtain the designation as a FRSMP Program, a State or States have the 

option to petition APHIS-PPQ to recognize their established or proposed Statemanaged phytosanitary program targeting a plant pest or pests that are not 

regulated at the Federal level. The OCAP will develop and use technical 

criteria to evaluate petitions from States requesting Federal recognition of 

State-managed phytosanitary programs for plant pests and make the 

appropriate determination based upon the merits of the petition. 

Specifically, the OCAP will: 

Develop and maintain criteria for recognizing a State-managed 

phytosanitary program 

Assess the technical feasibility of each petition for recognition of Statemanaged phytosanitary programs 

Identify, as necessary, points within the petition where the National 

Coordinator for Official Control must seek clarification or revisions from 

sponsoring State in order to appropriately evaluate the petition’s merits 

Recommend approval or denial of the petition to the PPQ Deputy 

Administrator through the Associate Deputy Administrator for 

Emergency and Domestic Programs 

Convene OCAP and experts to evaluate new information associated with 

existing State phytosanitary programs to determine if the program 

remains valid or needs to be altered or terminated 

Determine equivalent action at ports of entry relative to phytosanitary 

requirements for interstate commerce 

Describe State’s specific program reporting requirements relative to 

approved maintenance program 

01/2024-25 FRSMP Program Manual C-3 
Appendix C 

Article IV—PPQ Policy for Recognizing State-managed Phytosanitary Programs 

Article IV—PPQ Policy for Recognizing State-managed 

Phytosanitary Programs 

To implement a formal Federal recognition program for State-managed 

phytosanitary programs, PPQ intends to accept petitions from the State(s), 

review the petitions, and make decisions-in consultation with the petitioning 

State(s)-based on established criteria and standards. If PPQ federally 

recognizes the State’s program, PPQ will continue to take action at the U.S. 

ports of entry for such pests associated with commodities destined to the 

affected State(s). PPQ will also continue to take action on pests that are under 

consideration for State-managed phytosanitary programs until 1) PPQ in 

consultation with relevant States has determined that a phytosanitary program 

is unnecessary or impossible; 2) PPQ and States have agreed that it is not 

feasible to establish and maintain a program; or 3) States have expressed no 

interest in continuing a program. 

Article V— Panel Members 

Section 1. Panel Members 

The panel members shall consist of designees as follows: 

1. Ad hoc members – e.g. former OCAP members 

2. Field Operations Representative (National Operations Manager) 

3. National Coordinator for Official Control 

4. National Identification Services Director or unit delegate 

5. National Plant Board (NPB) Representative 

6. Pest Management (PM) Director or unit delegate 

7. Science and Technology Representative 

Section 2. General Duties 

Provide scientific expertise, field operations expertise, and regulatory expertise 

for the purpose of developing, maintaining, and using technical criteria for 

recognizing State-managed phytosanitary programs or, as needed by the 

National Coordinator for Official Control, addressing other areas relevant to 

the Federally Recognized State-managed Phytosanitary Program where subject 

matter expert advice may be useful. Report significant developments from 

OCAP meetings and communications to pertinent personnel within the PPQ 

division the member or designee represents. Is responsible for ensuring that 

OCAP associated tasks are carried out, as needed, within the PPQ division the 

member of designee represents. 

C-4 FRSMP Program Manual 01/2024-25 
Appendix C 

Article VI—Operations 

Section 3. Eligibility 

Members of OCAP shall be permanent PPQ employees with scientific, field 

operations, and/or regulatory expertise. The National Plant Board member 

shall be a permanent State Department of Agriculture employee with scientific, 

field operations, and/or regulatory expertise. 

Section 4. Officer Designated Alternates 

Members shall designate an alternate to attend in their absence who is qualified 

and capable of participating and contributing to meetings and petition 

evaluations. All designated alternates will meet the provisions specified in 

Sections 2 and 3 of this Article. 

Article VI—Operations 

The National Coordinator for Official Control will be responsible for assuring 

that members of the OCAP receive States petitions for review. The National 

Coordinator for Official Control will arrange meetings/conference calls/email 

communication among the panel members to perform the review. The OC 

Coordinator will review recommendations for approval/denial with the Plant 

Health Programs Office of the Executive Director before forwarding to the 

PPQ Deputy Administrator. 

Article VII—Meetings 

The OCAP will meet/convene at the call of the National Coordinator for 

Official Control. 

Article VIII—Quorum 

The group will achieve consensus with participation from at least one 

representative from Plant Health Programs, Science & Technology, and Field 

Operations. 

Decision Making 

OCAP decisions will be based on collaboration and consensus among the 

members. For the purposes of the OCAP, consensus is defined as the 

cooperative development of a decision with OCAP members working together 

toward a decision that is consented to by all members constituting a quorum. 

Full consent does not mean that everyone is completely satisfied with the final 

outcome, but that the decision is acceptable enough that all OCAP members 

agree to support the OCAP in choosing it. Full consent is only achieved when 

all OCAP members constituting a quorum agree or accept the decision. In the 

01/2024-25 FRSMP Program Manual C-5 
Appendix C 

Last Revision 

event that consensus cannot be reached on a petition evaluation or other 

significant matter, the issue will be elevated to the PPQ Management Team for 

consideration and resolution with all areas of OCAP member disagreement 

clearly noted. 

Last Revision 

Revisions to this OCAP Charter were approved by consensus Friday, 

November 12, 2010, by members of the OCAP meeting. Revisions to this 

OCAP Charter were added to reflect updates to the PPQ organizational 

structure on November 3, 2014, by the National Coordinator for Official 

Control. Revisions to the composition of the OCAP (Article V-Panel 

Members) were effected on November 16, 2015 to update PPQ structure and 

ensure a smooth transition when OCAP members change. Revisions to the 

composition of the OCAP allowing directors to delegate a member of their unit 

to serve on the panel and to remove the names of the original charter approvers 

were effected in January 2020. 

C-6 FRSMP Program Manual 01/2024-25 
Appendix 

D Appendix D 

OCAP Criteria for Federal Recognition of a 

State-managed Phytosanitary Program 

Contents 

Introduction D-1 

Criteria D-1 

I: The Petitioning State(s) Demonstrate that a Pest of Consequence is 

Under a Phytosanitary Program D-1 

II: The Petitioning State(s) Must Have or Be Able to Obtain Legal 

Authority to Act on the Pest D-3 

III: Technically Sound Exclusion/Containment/Eradication is Possible 

D-3 

Failure to Meet the Criteria D-4 

Introduction 

The following criteria will be used by the Plant Protection and Quarantine 

(PPQ) program of the U.S Department of Agriculture’s Animal and Plant 

Health Inspection Service to evaluate State petitions for Federal recognition of 

State-managed phytosanitary programs. Petitions will be reviewed by PPQ’s 

Official Control Advisory Panel (OCAP) to ensure that the criteria are 

satisfactorily met. If OCAP determines that a petitioning State(s) meet the 

criteria based upon the review, the State’s petition is eligible for approval by 

PPQ. Subsequently, PPQ will seek to enter into a Cooperative Arrangement 

with the State(s), formally providing Federal recognition of the State-managed 

phytosanitary program and terms to allow the State(s) to legally act to prevent 

the entry of a specified plant pest via domestic commerce and coordinate with 

PPQ to prevent the entry of these pests via foreign commerce. PPQ, 

specifically the OCAP, will collaborate with States to ensure that equivalent 

mitigation measures are applied to imports and the domestic movement of 

regulated articles. 

Criteria 

I: The Petitioning State(s) Demonstrate that a Pest of 

Consequence is Under a Phytosanitary Program 

The petition should include reasonable evidentiary documentation 

demonstrating that: 

01/2024-25 FRSMP Program Manual D-1 
Appendix D 

Criteria 

1. The area of the State(s) to be protected under the FRSMP Program is either 

pest-free or the pest population is under an appropriate level of 

phytosanitary management 

2. The pest can potentially establish (survive if introduced, as applicable) in 

the State(s) 

3. The pest can potentially cause significant economic and/or environmental 

damage in the State(s) 

4. It is technically feasible to exclude, eradicate, and/or contain the pest with 

phytosanitary measures 

Reasonable evidentiary documentation can include, but is not limited to, any of 

the following examples of documents that may be available: 

Pest data sheets 

Pest risk analyses (PRA) 

Comprehensive pest surveillance data 

State inspection reports 

Port interception data 

National Agricultural Pest Information System (NAPIS) data 

Global Pest and Disease Database (GPDD) and Centre for Agricultural 

Bioscience International (CABI) documentation 

Scientific and academic literature 

Some of this documentation may be maintained by the State and some may be 

obtained by the State from PPQ or other appropriate sources. Evidence may be 

developed by the State or in collaboration with PPQ. 

The petitioning State(s), upon providing reasonable evidentiary documentation 

deemed adequate to allow PPQ to approve a petition for Federal recognition of 

a State-managed phytosanitary program, may specifically be required, as 

needed, by PPQ to conduct pest surveillance to provide necessary 

supplemental evidentiary documentation. When such a specific pest 

surveillance program is necessary, it will be conducted in good faith by the 

State(s) in a timely manner and with sufficient rigor, which will be determined 

by PPQ in consultation with the State(s). 

More generally, to monitor Federal recognition of a State-managed 

phytosanitary program, PPQ will further require that all State(s) submit 

periodic supplementary surveillance documentation following the approval of 

a petition over a duration that will be specified in the subsequent memorandum 

of understanding between PPQ and the petitioning State(s). 

D-2 FRSMP Program Manual 01/2024-25 
Appendix D 

Criteria 

What constitutes an appropriate level of phytosanitary management will be 

addressed in the following sections of this document. 

II: The Petitioning State(s) Must Have or Be Able to Obtain 

Legal Authority to Act on the Pest 

The petition should provide evidence that State regulatory authority exists to 

restrict activities and articles that facilitate the movement of non-quarantine 

pests or quarantine pests that are not under domestic quarantine. This can be 

demonstrated by indicating that the State(s): 

Have a regulatory quarantine in place to maintain pest freedom or limit 

pest distribution 

Establish an inspection program targeting arriving interstate host 

shipments 

Have the commitment and capability to enact, implement, and enforce a 

regulatory quarantine in a timely manner 

In those cases when State(s) have a regulatory quarantine in place, the petition 

should provide a copy of the State or local (as well as Tribal if applicable) 

mandatory quarantine regulations associated with pest management programs, 

testing protocols (if applicable), and other related actions recently taken to 

maintain pest freedom or contain pest distribution. 

PPQ will accept petitions for Federal recognition of a State-managed 

phytosanitary program from State(s) that have the general authority and 

capability to enact a pest quarantine regulation, but do not currently have 

specific regulatory quarantine measures in place to address the pest of concern. 

In these cases, PPQ will provide the petitioning State(s) up to one year to put a 

pest-specific regulatory program in place. State(s) can request additional time 

to enact a pest specific regulatory quarantine contingent upon demonstrating to 

PPQ that their efforts are being conducted in good faith. 

III: Technically Sound Exclusion/Containment/Eradication is 

Possible 

State-managed phytosanitary programs should meet the following criteria: 

Mitigation measures are the least restrictive needed to assure adequate 

protection 

A process exists to regularly evaluate the feasibility of mitigation 

measures and demonstrate evidence of effectiveness (quality assurance) 

Annual reports are provided to PPQ showing evidence of the program’s 

effectiveness as it relates to areas of phytosanitary management (ranging 

from pest monitoring and detection, diagnostics and identification, 

regulatory activity, and control measures). Upon initiation of a federally 

01/2024-25 FRSMP Program Manual D-3 
Appendix D 

Failure to Meet the Criteria 

recognized State-managed phytosanitary program, PPQ will provide 

guidance to the State(s) as to what information the annual report should 

contain. For example, in relation to phytosanitary inspection and testing, 

the following kind of information would be particularly significant in 

reporting the program’s effectiveness: 

A description of the type of inspection or testing process used 

A listing of the type and quantity of material inspected 

An account of the origin of the material inspected and the name of 

person inspecting 

A report on the location, date, and results of inspection or testing 

States must be able to define and describe their programs and provide 

supporting documentation including such items as compliance 

agreements, auditing reports, maps defining the regulated areas, and 

marketing statistics 

All relevant and significant pathways are addressed with an estimated 2% 

inspection rate attained (or other rate comparable to Federal port of entry 

inspections1

) 

Appropriate diagnostic capability is demonstrated 

Failure to Meet the Criteria 

Any State petition that fails to meet part or all of the criteria above will be 

rejected by PPQ. A previously rejected petition may be resubmitted if the 

petitioning State(s) can revise it to provide the reasonable evidentiary 

documentation necessary to meet all of the criteria for Federal recognition of a 

State-managed phytosanitary program. 

While PPQ’s approval of a State(s) petition will result in a federally recognized 

State-managed phytosanitary program, this program will be monitored and any 

changes in the pest’s status or failure to meet requirements that result in the 

criteria no longer being met will result in PPQ reconsidering the status of the 

federally recognized State-managed phytosanitary program. 

NOTE: The criteria above are open to future revision, as needed by 

determination of the PPQ OCAP, to ensure the best possible, science-based 

evaluation of petitions for Federal recognition of State-managed 

phytosanitary programs. 

1 To calculate the inspection rate for program reporting purposes, States will have to provide and 

update periodically a reasonable estimate of volume of significant hosts entering the State and 

originating from States infested with the FRSMP pest. 

D-4 FRSMP Program Manual 01/2024-25 
Appendix E 

Analysis Aid for States 

Appendix 

E 

Contents 

Evaluation of Pests for USDA’s Federally Recognized State-managed 

Phytosanitary (FRSMP) Program E-1 

PPQ Regulated Pest E-1 

Distribution of Pest E-1 

Port of Entry Considerations E-1 

Technical Containment/Eradication Capabilities E-2 

Export Considerations E-2 

Interpreting Pest Interception Records E-2 

FRSMP Pest Interception Data E-3 

Comparing FRSMP to Programs that Seem Similar E-5 

FRSMP Program versus the Special Need Request versus Pest Free Areas 

E-7 

Evaluation of Pests for USDA’s Federally Recognized Statemanaged Phytosanitary (FRSMP) Program 

PPQ Regulated Pest 

1. Does APHIS PPQ regulate this pest under a federal domestic quarantine? 

Yes - Does not qualify for FRSMP. 

Distribution of Pest 

2. Is the pest established somewhere in the United States? 

No - Does not qualify for FRSMP. 

Port of Entry Considerations 

3. Can the pest be detected upon inspection? 

No - May not qualify for FRSMP 

4. Is the pest intercepted at ports of entry?1 

No - FRSMP may not be cost effective. 

5. Is the host commodity enterable from where the pest occurs?1 

No or Not Likely - FRSMP may not be cost effective. 

1 A FRSMP Program would, however, provide protection at ports of entry if that pest is detected as a 

hitchhiker or if a pathway emerges in the future. 

01/2024-25 FRSMP Program Manual E-1 
Appendix E 

Interpreting Pest Interception Records 

6. Is the host commodity regulated and/or treated as a condition of entry to 

exclude the pest, for example, to comply with IPPC International Standards 

for Phytosanitary Measures such as ISPM No. 15 for Wood Packing 

Material? 

Yes - FRSMP may not be cost effective. 

7. Does the plant pest belong to a larger group that requires action by APHIS 

PPQ, and the pest cannot typically be identified to species when 

intercepted at ports of entry? 

Yes - FRSMP may not be cost effective. 

Technical Containment/Eradication Capabilities 

8. Is a technically sound containment or eradication program possible?2 

No - Does not qualify for FRSMP. 

Export Considerations 

9. Are the host commodities in the endangered area exported? 

Yes - FRSMP may not satisfy all requirements of importing countries. A 

SPRO may wish to consider the establishment of a Pest Free Area (PFA). 

Interpreting Pest Interception Records 

When States consider establishing a FRSMP Program for a given pest, they 

will estimate the cost of excluding, containing and/or eradicating the pest. To 

determine if the costs are worth the investment, they should also make their 

estimates of the benefits derived. The added benefit of FRSMP Programs over 

interstate quarantine for the same pest is federal exclusion of the pest from 

foreign pathways of introduction. The State should estimate how often the pest 

is likely to enter the U.S. from foreign sources and with destination as that 

State. 

It is unknown how often a given pest has approached the U.S. in these 

pathways and it is impossible to predict the frequency of future occurrences. 

However, PPQ pest interception data record the number of times the pest was 

found during inspection and serves as the best gauge for estimating pest import 

frequency. 

PPQ National Identification Services (NIS) staff will provide States interested 

in establishing FRSMP Programs with five years of pest interception data for 

prospective FRSMP Program pests. The report for each pest will consist of a 

MS Excel file with the following information: 

2 Pests that are not contained, eradicated or excluded may be suppressed. It is important to note that 

suppression programs are not within the purview of official control and will not be recognized as 

FRSMP Programs. 

E-2 FRSMP Program Manual 01/2024-25 
Appendix E 

Interpreting Pest Interception Records 

Quarantine status of the pest 

Infested commodity 

Commodity type (fruit, cutting, etc.) 

Origin of commodity 

Destination state of commodity 

Volume of commodity in the infested shipment 

Pathways 

“Where intercepted” category (cargo, baggage, mail, etc.) 

Commodity use category (propagation, consumption) 

No. of interceptions (= number of infested shipments) 

By analyzing these data, the State can develop a better picture of how much 

protection the State would receive from a FRSMP Program. 

The purpose of these reports is to aid the States in interpreting pest interception 

data when evaluating potential benefit from establishing a FRSMP Program. 

Each of the nine data fields to indicate the meaning, importance and suggested 

use of the field in analyzing FRSMP Program potential. 

FRSMP Pest Interception Data 

Pest quarantine status. The pest will be designated as a quarantine pest for 

the U.S. or not at the time of the FRSMP petition. 

Infested commodity. Indicates the commodity manifested for importation 

(cargo), carried by a passenger or otherwise found infested with the pest. The 

pest may not be associated with the commodity in the environment but, rather, 

may have infested the shipment as a hitch hiker as a result of packaging, 

handling or other procedures. 

Commodity type (Imported as). This field records the form of the commodity, 

i.e. whether it was imported as a fruit, plant, root, seed or leaf. This 

information helps to define the pathway for the pest of concern. For example, 

if the pest is a root knot nematode on tomato plants, the State considering a 

FRSMP Program would choose to regulate/inspect tomato plants but not the 

fruit. 

Origin of commodity. This indicates the country of origin of the shipment, 

commodity and, presumably, the pest. Origins of cargo shipments are generally 

accurate. Origins of commodities carried by international passengers are often 

suspect. In many cases, inspectors must rely on the origin provided by the 

passenger or use the flight origin. 

01/2024-25 FRSMP Program Manual E-3 
Appendix E 

Interpreting Pest Interception Records 

Commodity final destination. Even for cargo shipments, accuracy for this 

field is suspect. Brokers often use their business address as destination rather 

than the ultimate delivery point of the cargo. Distribution warehouses also 

serve as destination when, actually, the shipment may travel all over the U.S. If 

your State is indicated repeatedly, at least you know the pest could frequently 

transit your State. 

Volume of commodity. Several very large infested shipments may very well 

pose a larger threat of pest establishment than numerous small shipments. 

Pathway: “Where intercepted” category (cargo, baggage, mail, etc.). The 

two “Pathway” data fields offer high utility in analyzing these data for FRSMP 

purposes. States should sort data on these two fields as part of their analysis. 

If the State decides NOT to implement a FRSMP Program and the pest was 

intercepted in cargo or mail, infested cargo or mail will be released and 

allowed to proceed to that State. The same pest found in other “Where 

intercepted” options will not be released, for reasons independent of FRSMP. 

For example, if found in the passenger “Baggage” category, the inspector will 

not know with certainty which organism he/she has intercepted - PPQ 

identifiers make the identifications. Therefore, the inspector must seize and 

destroy the infested commodity before submitting the pest for identification. 

With or without FRSMP Programs, the infested commodities from baggage 

will not be released into the U.S. So, States should not consider baggage 

interception numbers when estimating benefit of FRSMP Programs. Nor 

should they consider other “Where intercepted” options when the “Commodity 

Use” (“Material for”) column indicates “Non-Entry.” Thus, interceptions from 

ship or airplane “Quarters,” “Stores,” or “Holds” do not reflect situations 

where pests would be allowed to enter the U.S., with or without a FRSMP 

Program. Pests found in those situations are safeguarded and must exit the 

country with the carrier. 

Intended Use (propagation, consumption, non-entry). Again, “Non-Entry” 

pathways indicate that pests found in those situations are not allowed into the 

U.S. even if not quarantine pests. The distinction between commodities 

imported for propagation vs. consumption (meaning not for propagation) can 

be extremely important for determining the feasibility of implementing a 

FRSMP Program. If the pest under consideration for FRSMP is highly 

polyphagous and/or often a hitch hiker, it may be impractical to regulate the 

pest in many consumption pathways from infested states. 

For a pest like brown garden snail (BGS), for example, the State may choose to 

accept the risk posed by consumption pathways (not regulate these) because 

the snail could hitchhike with almost any foreign commodity (or container), 

whether the commodity is held for inspection upon arrival or not. The State 

E-4 FRSMP Program Manual 01/2024-25 
Appendix E 

Comparing FRSMP to Programs that Seem Similar 

may decide it would be impractical to track down and inspect shipments of 

many different commodities from all infested states. However, the State could 

choose to regulate only the propagative pathway for BGS. The State may deem 

this approach reasonable, wherein the State would list the pest as regulated and 

require nursery certification of freedom from BGS for all plants shipped from 

infested states. In this case, PPQ would implement similar policy at ports of 

entry, taking quarantine action on infested shipments of plants for planting but 

no action on infested consumption commodity shipments. 

Additionally, a State would likely elect to regulate only the propagative 

pathway for a pest when data indicates a record of interceptions only from that 

pathway and never, or rarely, from consumption commodities. 

No. of interceptions (= approximate number of infested shipments). Numbers 

of pest interceptions reflect the priorities and other biases of inspectional 

policy and personnel. Consequently, negative data do not guarantee lack of 

pest risk. High numbers indicate significant approach rates and heightened risk 

of pest establishment. 

PPQ will provide five years of interception data for pests under petition for 

FRSMP. When interpreting these data, the States must understand differences 

in availability of data for quarantine pests vs. non- quarantine organisms. For 

quarantine pests, all records were captured in the database during all five years. 

For non-quarantine organisms, all data were captured for interceptions from 

consumption items since March 2009; only a small percentage of data were 

captured from consumption commodities before March 2009. For nonquarantine organisms from propagative commodities, only a small percentage 

of data were captured for all five years. 

For further guidance and examples, please submit your request using the 

FRSMP@usda.gov mailbox. 

Comparing FRSMP to Programs that Seem Similar 

Other activities that APHIS-PPQ oversees have some similarities to the 

FRSMP Program, but have differing purposes and goals. Refer to Table E-1 on 

page E-6 for a comparison of those programs with the purpose and goals of the 

FRSMP Program. 

01/2024-25 FRSMP Program Manual E-5 
 

 

 

 

 

Appendix E 

Comparing FRSMP to Programs that Seem Similar 

Table E-1 FRSMP-OC-SN-PFA Relationships 

Category 

Federally Recognized State-managed Phytosanitary 

Program 

Official Control1 Special Need Provision Of The 

Plant Protection Act Pest-free area1 

Definition The active enforcement of mandatory 

phytosanitary regulations and the application of 

phytosanitary procedures with the objective of exclusion, 

eradication or containment of quarantine pests or for the 

management of regulated non-quarantine pests. 

The active enforcement of mandatory 

phytosanitary regulations and the application of phytosanitary 

procedures with the 

objective of eradication or containment of 

quarantine pests or 

for the management 

of regulated non-quarantine pests. 

A State or political subdivision of a 

State may impose prohibitions or 

restrictions upon the movement in 

interstate commerce of articles, 

means of conveyance, plants, 

plant products, biological control 

organisms, plant pests or noxious 

weeds that are in addition to the 

prohibitions or restrictions 

imposed by the Secretary, if the 

State or political subdivision of a 

State demonstrates to the Secretary and the Secretary finds that 

there is a special need for additional prohibitions or restrictions 

based on sound scientific data or 

a thorough risk assessment. 

An area in which a 

specific pest does not 

occur as demonstrated by scientific 

evidence and in 

which, where appropriate, this condition is 

being officially maintained. 

Purpose For the National 

Plant Protection 

Organization 

(NPPO) to oversee 

recognized State 

level exclusion, eradication or containment programs for 

the purpose of nondiscriminatory risk 

management. 

For the National Plant 

Protection Organization (NPPO) to perform eradication or 

containment programs for the purpose 

of non-discriminatory 

risk management, or 

oversee recognized 

State level eradication or containment 

programs. 

For a State to gain approval from 

the Secretary to impose prohibitions or restrictions on the movement in interstate commerce of 

articles, that are in addition to prohibitions or restrictions imposed 

by PPQ. 

A risk management 

option for phytosanitary certification of 

plants and plant products and other regulated articles exported 

from the area or to 

support scientific justification for phytosanitary measures taken 

by an importing country for protection of an 

endangered PFA. 

Goals To justify safeguarding measures taken 

at ports of entry; 

apply non-discriminatory measures for 

foreign import and 

interstate commerce. 

To justify safeguarding measures taken at 

ports of entry; apply 

non-discriminatory 

measures for foreign 

import and interstate 

commerce. 

Provide extra protection to area 

from a pest regulated by PPQ that 

may be transported through interstate commerce. 

Predominant goal is 

to facilitate exports by 

providing scientific 

documentation that a 

regulated pest which 

is of limited distribution in a country, is not 

present in the defined 

area. 

Federal/State Managed at the Fed- Special Need may be considered Pest-free areas are 

Pest Program eral Level by 7 CFR for pests that PPQ regulates established in order to 

Relationship 301 or Federal Order. under 7 CFR 301 or by Federal 

Order. 

facilitate exports for 

regulated pests of limited distribution in the 

United States. 

Managed at the Managed at the State Special Need cannot apply to Pest-free areas may 

State level and rec- Level- (SMOC) State pests not under Federal Regula- be established within 

ognized by PPQ as Managed Official tion. A State may choose to estab- States and may or 

meeting approved Control. lish its own phytosanitary may not follow geopocriteria. program. litical boundaries 

within a particular 

State 

E-6 FRSMP Program Manual 01/2024-25 
1 

Appendix E 

FRSMP Program versus the Special Need Request versus Pest Free Areas 

International Standards for Phytosanitary Measures (ISPM No.5). 

FRSMP Program versus the Special Need Request versus Pest Free 

Areas 

FRSMP Program and the Special Need request share requirements States 

submit to PPQ: 

1. Absence or limited distribution 

2. Likelihood of entry and establishment 

3. Potential economic/ environmental harm 

4. Program for maintenance/ verification 

5. State phytosanitary regulations 

After that, the similarities ends. Special Need is for requests concerning pests 

that PPQ regulates domestically such as spongy moth, European grapevine 

moth, and Plum pox virus. Following a successful application for a Special 

Need request, States may impose stricter phytosanitary regulations than PPQ 

on the approved pest for extra protection in interstate commerce. PPQ will 

continue to regulate the pest at ports of entry with Federal quarantines in place, 

with no plans to discontinue. 

The FRSMP Program is designed to address different circumstances. PPQ has 

no domestic regulations for pest movement, PPQ has made the decision there 

will be no domestic resources invested to contain or eradicate the pest, PPQ 

plans to stop regulating the pest at ports of entry, and the pest can be feasibly 

contained, eradicated or excluded by interested States. 

What can a State do if the pest may have an unacceptable economic or 

environmental impact for them? As is the practice today, the State can impose 

its own exterior quarantine and/or establish a containment/eradication 

program, which will protect the State in domestic commerce. What about 

protection in foreign trade? The State can be confident of protection if: 

The pest is rarely if ever intercepted at ports of entry 

The pest is part of a family regulated at ports of entry when detected in its 

immature stages 

The pest is regulated under the conditions of ISPM No. 15 without another 

pathway 

01/2024-25 FRSMP Program Manual E-7 
 

Appendix E 

FRSMP Program versus the Special Need Request versus Pest Free Areas 

What are the options if the previous conditions do not apply? A State may seek 

to establish a Pest Free Area or petition for Federal recognition of their 

phytosanitary program. 

How would a Pest Free Area (PFA) help a State? If a State has export 

commodities associated with the pest, then a PFA could mitigate the importing 

country’s phytosanitary requirements. The establishment of a PFA justifies 

regulating the pest at ports of entry. 

How would the FRSMP Program help a State? FRSMP may be the solution 

when PPQ has no domestic regulations for the pest but the State does, and the 

pest is encountered in foreign trade. Effective and non-discriminatory 

(equivalent) phytosanitary measures would be required. 

Let’s compare: 

Table E-2 FRSMP-SN-PFA Comparison 

FRSMP Special Need Pest Free 

Area 

PPQ regulated pest domestically? X 

State Quarantine affected by PPQ 

regulations? 

X 

State imposes extra protection in 

interstate commerce? 

X X X 

State receives port of entry protection? X X X 

Exports facilitated? X 

E-8 FRSMP Program Manual 01/2024-25 
Appendix 

F Appendix F 

Supporting Action, Program Process, and 

Program Flow 

Contents 

Action to Support the FRSMP Program at Ports of Entry F-1 

FRSMP Program Process at Ports of Entry F-2 

FRSMP Program Flow F-2 

Action to Support the FRSMP Program at Ports of Entry 

PPQ Form 523, Emergency Action Notification is used for Formal 

Communication of Remedial Measures. When a pest is detected on an 

imported commodity, and PPQ identifies it as under the FRSMP Program, the 

following procedure will take place. Refer to Table F-1 on page F-2, which 

will summarize the following explanation: 

If the commodity enters a port in a State which has a FRSMP Program, the 

options to the importer will be the least restrictive measure that is feasible and 

adequate to prevent the dissemination of any plant pest new to or not known to 

be widely prevalent or distributed as per the Plant Protection Act of 2000. The 

CBPAS or PPQ Officer will follow the appropriate manual for specific 

instructions. 

If the commodity is not arriving in a State having a federally recognized Statemanaged phytosanitary program, an EAN will be issued as an official order to 

the owner or his agent that the pest is subject to the terms of the FRSMP 

Program. PPQ identifiers or National Identification Services through PPQ 

identifiers will relate the remedial action to the CBPAS or PPQ Officer who is 

issuing the EAN. The CBPAS or PPQ Officer will follow the appropriate 

manual for specific instructions. 

The EAN will communicate that the pest is prohibited from entering a FRSMP 

Program State(s) for that pest. Should a future decision be made to move the 

shipment to a State with a FRSMP Program for the pest present in the 

shipment, the shipment must meet treatment requirements if available in order 

to be moved there. Failure to comply with those requirements will be cause for 

a violation under Section 414 of the Plant Protection Act. 

01/2024-25 FRSMP Program Manual F-1 
 

Appendix F 

FRSMP Program Process at Ports of Entry 

FRSMP Program Process at Ports of Entry

 1. The Agricultural commodity is imported and inspected at the U.S. port 

of entry (POE).

 2. If no plant pest is detected, the shipment is released.

 3. A plant pest is detected and identified. For a more detailed description of 

the process, refer to the Manual for Agricultural Clearance or the Plant 

Inspection Stations Manual. 

FRSMP Program Flow 

A FRSMP Program pest1 is detected on an imported shipment. Refer to 

Table F-1 for the process. 

Table F-1 FRSMP Program Flow 

If the shipment is: Then: 

Arriving in a FRSMP State (1) TREAT; (2) RE-EXPORT; (3) DESTROY; or REDIRECT 

and avoid States participating in a FRSMP Program for that 

specific pest 

Not arriving in a FRSMP 

State 

1. INCLUDE notice to avoid States participating in a 

FRSMP Program for that specific pest 

2. RELEASE the shipment 

3. PPQ generates internal alert 

When the EAN communicating required remedial measures is issued to an 

owner or agent whose commodity is not arriving in a State with a federally 

recognized State-managed phytosanitary program, PPQ will also communicate 

with the appropriate internal PPQ group for periodic quality assurance follow 

up in the market place. The internal PPQ group may confirm by shipping 

records that the shipment did not move to that State. If records indicate that the 

shipment did indeed enter the State without remedial measures, State and/or 

federal agencies may pursue a violation. 

1 FRSMP pests are quarantine pests that require phytosanitary action. 

F-2 FRSMP Program Manual 01/2024-25 
Appendix 

G Appendix G 

Audit Checklist 

Contents 

FRSMP Program Audit Checklist and Summary Report G-1 

APHIS Audits G-1 

Audit Checklist G-1 

Checklist Instructions G-1 

FRSMP Program Audit Checklist and Summary Report 

APHIS Audits 

APHIS will conduct regular audits of a State FRSMP Program that has been 

approved and implemented. The objective of these audits is to identify the 

program’s conformance or deficiencies in its implementation. 

APHIS-PPQ Field Operations will determine the procedure to conduct these 

audits with a frequency of one audit per approved program every three years. 

Audit Checklist 

The attached checklist must be used by PPQ auditors who will be designated 

by PPQ Field Operations. The list reflects the conditions agreed upon by the 

State during the original application process. Interviews with State officials are 

an important component of these audits. With some exceptions, the burden to 

prove conformance resides on the State. 

It is important that PPQ auditors request appropriate documents required to 

complete the checklist and record titles of such documents in the “Notes” 

sections of the checklist. Depending on funding and availability of personnel, 

auditors should also consider coordinating site visits to verify conformance. 

PPQ auditors should note that the some evidence may be used in more than one 

section of the checklist, if appropriate. 

Checklist Instructions1 

Refer to the tables on the following pages. 

1 This Checklist applies to FRSMP pests. 

01/2024-25 FRSMP Program Manual G-1 
 

 

Appendix G 

FRSMP Program Audit Checklist and Summary Report 

Table G-1 General Information—Pest 

Date: 

Write date of audit, and include any site visits. 

Pest: 

Write pest covered by FRSMP Program, and include the common and scientific names. 

Current domestic distribution: 

Provide a list of States where pest occurs in the United States. Specify any updates on distribution. Use the IPPC 2007 

definition of establishment: “perpetuation, for the foreseeable future, of a pest within an area after entry.” Provide supporting references below. 

Host range: 

Provide list of hosts that are of importance to the state(s). Specify any updates on list of hosts. Provide family, scientific 

name and common name. Please include supporting references below. 

Notes and references: 

Document any additional relevant information. Attach additional pages if necessary. 

G-2 FRSMP Program Manual 01/2024-25 
 

Appendix G 

FRSMP Program Audit Checklist and Summary Report 

Table G-2 General Information—Program 

Name of Sponsoring State: 

Specify name of sponsoring State. 

Name of Additional State(s): 

Write name(s) of additional approved States(s) covered in the original petition. 

If there are no additional States, write “N/A.” 

Name of PPQ Auditor(s): 

Write name of PPQ official conducting the audit. 

Name of State Official(s): 

Write name of State(s) officials involved in this audit. 

Is a copy of the petition signed by a designated State official available? 

Check as appropriate. 

Yes No N/A 

Is a copy of the signed Cooperative Arrangement with APHIS available? 

Check as appropriate. 

Yes No N/A 

Is the APHIS permit for the pest available? 

Check as appropriate. 

Yes No N/A 

Notes 

Document any additional relevant information. Attach additional pages if necessary. 

01/2024-25 FRSMP Program Manual G-3 
 

 

Appendix G 

FRSMP Program Audit Checklist and Summary Report 

Table G-3 Presence 

Has the State conducted a comprehensive pest survey? 

Check as appropriate. Cite sources in “Notes” below. If a field visit is conducted, specify. 

Yes No N/A 

Has the State conducted surveillance activities? 

Provide supporting documentation. 

Yes No N/A 

Are there State inspection reports pertaining to the FRSMP pest available? 

Check as appropriate. Please include inspection reports. 

Yes No N/A 

Is there evidence that the pest is officially contained or under eradication? 

Request appropriate comprehensive survey data or scientific and academic literature 

that defines infested area(s), endangered area(s), protected area(s), and procedures 

used in containment or eradication. Cite sources in “Notes” below. 

Evidence supports that program remains technically feasible. 

If pest does not exist in State, check “No” and cite evidence in “Notes below.” 

If pest is prevalent in greenhouses, specify in “Notes below.” 

Yes No N/A 

Do records exist for the pest? 

Pest records exist in databases such as: 

 National Agricultural Pest Information System (NAPIS) Database 

 Centre for Agricultural Bioscience International (CABI) Database 

 Global Pest and Disease Database (GPDD) 

 Other (please specify in “Notes” below.) 

Yes No N/A 

Is scientific literature available in regard to status of FRSMP pest in the program 

State(s)? 

Cite sources, if applicable, in “Notes” below. 

Yes No N/A 

Notes 

Document any additional relevant information. Attach additional pages if necessary. 

G-4 FRSMP Program Manual 01/2024-25 
Appendix G 

FRSMP Program Audit Checklist and Summary Report 

Table G-4 Possible Introduction Pathways 

Has Pest Risk Analysis (PRA) been updated? 

Check as appropriate. 

Yes No N/A 

Is there evidence that new pathways exist for the pest to enter the State(s)? 

Request updated information if new pathways of introduction exist. Information may 

address any means; i.e., pathways-- that would allow continued introduction of the pest 

into the State(s), or further facilitate the pest's introduction to the State(s). Examples of 

pathways include (but are NOT limited to): 

 Importation of Host 

 Interstate Trade 

 Smuggling 

 Natural Spread 

Specify in “Notes” below if new information on pathways exists. Cite sources (like database reports) in “Notes” below. Note any negative impact on technical feasibility of program. 

Yes No N/A 

Is there new port interception data on the pest? 

Check as appropriate. NOTE: States may not have this information. Request reports 

from QPAS administrators for ARM and EAN databases or from FRSMP Coordinator. 

Yes No N/A 

Is natural spread one of the pathways? Explain means and rate of natural spread in 

“Notes” below. 

Request relevant sources of information. Cite in “Notes” below. 

Yes No N/A 

Notes 

Document any additional relevant information. Attach additional pages if necessary. 

01/2024-25 FRSMP Program Manual G-5 
 

Appendix G 

FRSMP Program Audit Checklist and Summary Report 

Table G-5 Maintenance/management/verification 

Is there evidence of State(s)’ actions to maintain and monitor for pest freedom, limit distribution, or containment (including exclusion)? 

Request appropriate comprehensive survey data, surveillance data, trapping data, or 

scientific and academic literature that defines infested area(s), endangered area(s), 

protected area(s), and procedures used in containment or eradication. 

Cite sources in “Notes” below. If a field visit is conducted, specify. 

Yes No N/A 

Is there evidence of inspections being conducted? 

Check as appropriate. Cite sources in “Notes” below. If a field visit is conducted, specify. 

Yes No N/A 

Does a State process exist to regularly evaluate the feasibility and effectiveness (quality assurance) of the FRSMP Program in place? 

Review appropriate documents. Cite sources in “Notes” below. If a field visit is conducted, specify. 

Yes No N/A 

Regulated Non-Quarantine Pests (RNQP) ONLY. Is there evidence of State(s)’ 

actions to manage the level of pest(s) in plants for planting? 

Request appropriate documents that demonstrate that the pest is maintained below a 

tolerance level that can affect production, health or marketability of plants for planting 

and cause an unacceptable economic impact. Information must demonstrate that State 

verifies the management of the pest by producers. 

Cite sources and specify if field visits were conducted in “Notes” below. 

Indicate pest’s tolerance level in “Notes” below. 

Yes No N/A 

Notes 

Document any additional relevant information. Attach additional pages if necessary. 

G-6 FRSMP Program Manual 01/2024-25 
 

 

Appendix G 

FRSMP Program Audit Checklist and Summary Report 

Table G-6 Quarantine Regulations 

Is there a copy of established State, local or Tribal quarantine regulations that provide 

for enforcement of the FRSMP Program? 

Request evidence that State, local or Tribal authority exists to restrict the movement of 

FRSMP pest. State, local, or Tribal regulations are in place to exclude the pest or limit 

its distribution. 

Cite sources in “Notes” below. Specify any updates on regulations. 

Yes No N/A 

Are regulations specific to the FRSMP pest? 

Request evidence that regulations are specific to pest. 

If regulations provide a general authority only, specify in “Notes” below. 

If regulations are not in place, document evidence that regulations are in progress. 

Yes No N/A 

Notes 

Document any additional relevant information. Attach additional pages if necessary. 

01/2024-25 FRSMP Program Manual G-7 
Appendix G 

FRSMP Program Audit Checklist and Summary Report 

FRSMP Program Audit Checklist and Report Form 

FRSMP Program Audit Checklist 

Form date

AUDIT REPORT: PPQ FRSMP AUDIT of _________ Reserve 

this section for Audit Report 

Summary Comments from Audit Results: 

Attach copy of agenda provided. 

Review copy of checklist provided by State before the audit to PPQ. 

Auditors will capture questions and comments here͘

Deficiencies Noted, if any, and Recommended Actions: 

Auditors will list any deficiencies noted. Actions discussed and selected will be listed here. 

Action Items: 

List action items noted for either agency here. 

For State: 

For PPQ: 

Reponses Post Audit: 

Which action items were addressed by time of report. Which are still outstanding? 

Signature of State Representative Signature of Lead Auditor 

Post Audit Actions 

Signature of FRSMP National Coordinator -

Questions Identified before Audit: 

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Figure G-1 

G-8 FRSMP Program Manual 01/2024-25 
Appendix 

H Appendix H 

Online Resources 

Links to Useful Websites 

Refer to the websites below for additional information: 

National Plant Board 

IPPC Adopted Standards 

National Agricultural Statistics Service 

Threatened and Endangered Species System 

USDA Crop Profiles 

U.S. Government Printing Office Style Manual 

Approved State-managed Phytosanitary Programs 

As FRSMP Programs are approved, links to those approved State-managed 

phytosanitary programs will appear in Appendix B. 

01/2024-25 FRSMP Program Manual H-1 
Appendix H 

Links to Useful Websites 

H-2 FRSMP Program Manual 01/2024-25 
Glossary 

FRSMP 

Program 

Definitions, Terms, and Abbreviations 

containment1. Application of phytosanitary measures in and around an 

infested area to prevent spread of a pest. 

delimiting survey1. Survey conducted to establish the boundaries of an area 

considered to be infested by or free from a pest. 

detection survey1

. Survey conducted in an area to determine if pests are 

present. 

endangered area1

. An area where ecological factors favor the establishment of 

a pest whose presence in the area will result in economically important loss. 

equivalence (of phytosanitary measures)1. The situation where, for a 

specified pest risk, different phytosanitary measures achieve a contracting 

party’s appropriate level of protection. 

eradication1. Application of phytosanitary measures to eliminate a pest from 

an area. 

exclusion2. Application of phytosanitary measures in and around an 

endangered area to prevent the introduction of a pest. 

Federal Collaborator. An individual who has specialized plant health skills 

that APHIS requires to complete specialized program activities, complete 

APHIS training, or perform APHIS-sanctioned duties. The Plant Protection 

Act of 2000 (PPA) authorizes the Secretary 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. For more 

information, refer to Statement of Work for Federal Collaborators on page 

A-13. 

International Plant Protection Convention1. International Plant Protection 

Convention, as deposited with FAO in Rome in 1951 and as subsequently 

amended. 

International Standard for Phytosanitary Measures1. An international 

standard adopted by the Conference of FAO, the Interim Commission on 

1 From International Standards for Phytosanitary Measures ISPM No. 5, Glossary of Phytosanitary 

Terms (2013). 

2 Proposed IPPC definition. 

01/2024-25 FRSMP Program Manual Glossary-1 
 

Glossary 

Definitions, Terms, and Abbreviations 

phytosanitary measures or the Commission on phytosanitary measures, 

established under the IPPC. 

interstate commerce3

. Trade, traffic, or other commerce: (a) between a place 

in a State and a point in another State, or between points within the same State 

but through any place outside that State; or (b) within the District of Columbia, 

Guam, the Virgin Islands of the United States, or any other territory or 

possession of the United States. 

legislation4

. Any act, law, regulation, guideline or other administrative order 

promulgated by a government [ISPM No. 3, 2005]. 

monitoring4

. An official ongoing process to verify phytosanitary situations. 

move and related terms3. The terms “move”, “moving”, and “movement” 

mean: (a) to carry, enter, import, mail, ship, or transport; (b) to aid, abet, cause, 

or induce the carrying, entering, importing, mailing, shipping, or transporting; 

(c) to offer to carry, enter, import, mail, ship, or transport; (d) to receive to 

carry, enter, import, mail, ship, or transport; (e) to release into the environment; 

or (f) to allow any of the activities described in a preceding subparagraph. 

National Plant Protection Organization4

. Official service established by a 

government to discharge the functions specified by the IPPC. 

permit3

. A written or oral authorization, including by electronic methods, by 

the Secretary to move plants, plant products, biological control organisms, 

plant pests, noxious weeds, or articles under conditions prescribed by the 

Secretary. 

pest4. Any species, strain or biotype of plant, animal or pathogenic agent 

injurious to plants or plant products. 

phytosanitary measure (agreed interpretation)4. Any legislation, regulation 

or official procedure having the purpose to prevent the introduction and/or 

spread of quarantine pests, or to limit the economic impact of regulated nonquarantine pests. 

phytosanitary procedure4. Any official method for implementing 

phytosanitary measures including the performance of inspections, tests, 

surveillance or treatments in connection with regulated pests. 

protected area4

. A regulated area that an NPPO has determined to be the 

minimum area necessary for the effective protection of an endangered area. 

3 From the Plant Protection Act of 2000. 

4 From International Standards for Phytosanitary Measures ISPM No. 5, Glossary of Phytosanitary 

Terms (2013). 

Glossary-2 FRSMP Program Manual 01/2024-25 
 

 

 Glossary

 Definitions, Terms, and Abbreviations 

quarantine pest4. A pest of potential economic importance to the area 

endangered thereby and not yet present there, or present but not widely 

distributed and being officially controlled. 

regulated area5. An area into which, within which and/or from which plants, 

plant products and other regulated articles are subjected to phytosanitary 

regulations or procedures in order to prevent the introduction and/or spread of 

quarantine pests or to limit the economic impact of regulated non-quarantine 

pests (refer to Glossary Supplement No. 2). 

regulated nonquarantine pest5. A nonquarantine pest whose presence in 

plants for planting affects the intended use of those plants with an 

economically unacceptable impact and which is therefore regulated within the 

territory of the importing contracting party. 

sponsor6

. Individual or entity who organizes and is committed to the 

development of a product, program or project. For the APHIS-PPQ FRSMP 

Program, the sponsor is responsible for coordinating, leading communication, 

and planning among interested SPROs. The initiating SPRO may sponsor the 

final petition or defer that role to another participating SPRO. The sponsoring 

State will be identified in the title of the program – i.e. The Federally 

Recognized State-managed Phytosanitary Program for “Pest A” Sponsored by 

the State of “B.” 

State7. Any of several States of the United States, the Commonwealth of the 

Northern Mariana Islands, the Commonwealth of Puerto Rico, the District of 

Columbia, Guam, the Virgin Islands of the United States, or any other territory 

or possession of the United States. 

surveillance5. An official process which collects and records data on pest 

occurrence or absence by survey, monitoring, or other procedures. 

survey5. An official procedure conducted over a defined period of time to 

determine the characteristics of a pest population or to determine which 

species occur in an area. 

5 From International Standards for Phytosanitary Measures ISPM No. 5, Glossary of Phytosanitary 

Terms (2013). 

6 Definition of term for the FRSMP Program. 

7 From the Plant Protection Act of 2000. 

01/2024-25 FRSMP Program Manual Glossary-3 
 

Glossary 

Definitions, Terms, and Abbreviations 

Glossary-4 FRSMP Program Manual 01/2024-25 
FRSMP 

Program 

Index 

A 

actionable status 5 

Agricultural Quarantine Inspection (AQI) Review 

Process 1 

alternate petition process 1 

Animal and Plant Health Inspection Service 2 

annual reports 5 

APHIS Stakeholder Registry 7 

APHIS Strategic Plan 2 

audit/monitoring requirements 5 

audit/review guidelines 5 

Authorized Departmental Officer’s Designated Representative (ADODR) 5 

C 

cancellation 6 

Science & Technology 1 

compliance agreements 5 

containment 4 

control 3 

conventions 3 

Customs and Border Protection (CBP) 2 

D 

Data Management and Analysis Program (DMA) 1 

DEEP 1 

Department of Homeland Security 2 

Deregulation Evaluation of Established Pests 

(DEEP) 1, 2, 1 

documentation 4 

domestic commerce 2, 5 

domestic measures 2 

domestic pathways 2 

domestic quarantine 3 

E 

economic harm 4 

economic risk 1 

Emergency Action Notification (EAN) 2 

endangered area 2, 4 

enforcement 4 

environmental harm 4 

environmental risk 1 

equivalent action 2 

equivalent phytosanitary requirements 2 

eradication 3, 4 

established criteria 4 

exclusion 3, 4 

exclusionary measures 2 

exotic plant pests 3 

F 

Federal Collaborator 3, 5, 6 

Federal recognition 6, 5 

Federal Register Notice 7, 3 

foreign commerce 2, 3, 5 

FRSMP Program Coordinator 6 

H 

hosts 4 

hypertext 4 

I 

import requirements 3 

importing country 1 

infested area 4 

Information Services & Manuals Unit (ISMU) 2 

inspections 5 

International Plant Protection Convention (IPPC) 1, 

2 

International Standards for Phytosanitary Measures 

2 

interstate commerce requirements 1 

ISPM No. 11 3 

ISPM No. 15 2, 7 

ISPM No. 3 2 

ISPM No. 5 1, 3, 2, 3, 2, 1, 2, 3 

J 

Job Aids 2 

M 

management program 4 

monitoring programs 4 

N 

National Coordinator 3, 5 

National Coordinator for Official Control 5 

National Identification Services 5 

National Operations Manager 5 

National Plant Board 5, 2, 1 

National Plant Protection Organization (NPPO) 2 

noncompliance 6 

non-quarantine pests 1, 5 

North American Plant Protection Organization 

(NAPPO) 2 

noxious weeds 2, 5 

O 

Official control 1, 2 

Official Control Advisory Panel (OCAP) 2, 3, 4 

P 

periodic site visits 3 

pest freedom 4 

petitions 4 

phytosanitary measures 2 

Plant Epidemiology and Risk Analysis Laboratory 1 

plant pest permit 3 

plant pests 2, 3 

Plant Protection and Quarantine 2 

A 

B 

C 

D 

E 

F 

G 

H 

I 

J 

K 

L 

M 

N 

O 

P 

Q 

R 

S 

T 

U 

V 

W 

X 

Y 

Z 

01/2024-25 FRSMP Program Manual Index-1 
Index 

plants for planting 4 

port inspections 2 

ports of entry 2, 3, 1 

PPQ Field Operations Staff 2 

PPQ Policy Management Staff 2 

preclearance work plans 5 

program termination 6 

protected area 4 

Q 

quarantine pests 3, 5 

quarantine regulations 4 

R 

re-categorization 3 

recognized program 5 

regulated non-quarantine pests 1, 2 

regulations 4, 5 

regulatory authority 4 

remedial action 5 

resources 5 

S 

sanitary and phytosanitary issues 2 

site visits 3 

State actions 4, 5 

State Departments of Agriculture 2 

State-managed Phytosanitary Program 2, 3 

State partners 6 

State Plant Health Directors (SPHDs) 5, 1 

State Plant Regulatory Official (SPRO) 2, 5, 2 

State quarantines 2 

supporting information 3, 4 

survey data 4 

surveys 5 

T 

testing protocols 4 

trading partner 3 

Tribal nations 5 

W 

World Trade Organization Notice 7 

A 

B 

C 

D 

E 

F 

G 

H 

I 

J 

K 

L 

M 

N 

O 

P 

Q 

R 

S 

T 

U 

V 

W 

X 

Y 

Z 

Index-2 FRSMP Program Manual 01/2024-25