United States Department of Agriculture

Animal and Plant Health Inspection Service

Plant Protection and Quarantine

Risk Management Document

Importation of Fresh Pepper Fruit – Capsicum annuum L., 

Capsicum baccatum L., Capsicum chinense Jacq., Capsicum 

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

Ecuador into the United States

January 18, 2013

Plant Health Programs (PHP)

Regulations, Permits and Manuals (RPM)

Contact Person: Claudia Ferguson
Introduction

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

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

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

(PRA) that was conducted by APHIS (USDA, 2011). 

APHIS prepared a PRA to examine plant pest risks associated with the importation of fresh 

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

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

response to a request by the government of Ecuador (USDA, 2011). The PRA considered the 

risk associated with the importation of several species of Capsicum (C. annuum, C. baccatum, 

C. chinense, and C. frutescens) because of taxonomic uncertainty regarding the species status 

(Walsh & Hoot, 2001) and because wild populations of C. annuum merge with populations of C. 

frutescens and C. chinense (Eshbaugh, 1993). There is a wide overlap of common name usage 

among all domesticated Capsicum species (Bosland, 1996) so two other cultivated species (C. 

baccatum and C. pubescens) were also included in the PRA (USDA, 2011). The PRA was 

prepared based on pest interception data, the scientific literature, and information provided by

the Government of Ecuador.

The PRA found nine quarantine pests that may follow the pathway of fresh peppers fruit with 

stems from Ecuador into the United States (USDA, 2011). The pest list includes seven insects, 

one fungus and one virus.

Arthropods

Anastrepha fraterculus Wiedemann (Diptera: Tephritidae)

Ceratitis capitata Wiedemann (Diptera: Tephritidae)

Neoleucinodes elegantalis (Guenée) (Lepidoptera: Pyralidae)

Spodoptera litura (Fabricius) (Lepidoptera: Noctuidae)

Thrips palmi Karny (Thysanoptera: Thripidae)

Tuta absoluta (Meyrick) Povolny (Lepidoptera: Gelechiidae)

Fungi

Puccinia pampeana Speg. (Urediniomycetes: Uredinales)

Viruses

Andean potato mottle virus (APMoV) (Comoviridae)

The PRA rated seven pests, six insects and one fungus, as High pest risk potential (the insects 

Anastrepha fraterculus, Ceratitis capitata, Frankliniella schultzei, Spodoptera litura, Thrips 

palmi, and Tuta absoluta, and the fungus, Puccinia pampeana). The PRA rated Neoleucinodes 

elegantalis, and the virus Andean potato mottle virus—with Medium pest risk potentials. 

According to USDA guidelines for pathway initiated pest risk assessments (USDA, 2000), specific 

phytosanitary measures beyond port of entry inspection are strongly recommended for pests with 

High pest risk potentials, and phytosanitary measures may be necessary for pests with Medium 

pest risk potential. 
Risk Mitigation Measures

Fresh pepper (Capsicum spp.) fruits with stems may be imported into the United States from 

Ecuador only under the following conditions:

(1) The NPPO of Ecuador must provide an operational workplan to APHIS that details the 

activities and responsibilities Ecuador’s NPPO will, subject to APHIS’ approval of the workplan, 

carry out to meet the requirements of the systems approach. The peppers must be grown in 

approved production sites registered with the National Plant Protection Organization (NPPO) of 

Ecuador. Initial approval of the production sites will be completed jointly by the Ecuadorian

NPPO and APHIS. The Ecuadorian NPPO will visit and inspect the production sites monthly, 

starting 2 months before harvest and continuing through until the end of the shipping season. 

APHIS reserves the right to require APHIS oversight visits in the event of pest interceptions or 

other problems.

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

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

screening.

(3) Registered sites must contain traps for the detection of Medfly and Anastrepha fraterculus

both within and around the production site.

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

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

serviced on a weekly basis.

(b) If a single Medfly or Anastrepha fraterculus is detected inside a registered production 

site or in a consignment, the registered production site will lose its ability to export 

peppers to the United States until APHIS and the Ecuadorian NPPO mutually determine 

that risk mitigation is achieved.

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

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

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

these traps must be near the greenhouse. Traps must be set for at least 2 months before 

export and trapping must continue to the end of the harvest.

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

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

production site until APHIS and the Ecuadorian NPPO can agree that the pest risk has 

been mitigated.

(4) The greenhouse must be inspected prior to harvest for the thrips Thrips palmi, the 

Lepidoptera Neoleucinodes elegantalis, Spodoptera litura and Tuta absoluta, the Fungi Puccinia 

pampeana and the Andean potato mottle virus. If any of these pests or other quarantine pests is

found to be generally infesting or infecting the greenhouse, export from that production site will 
be halted until the Ecuadorian NPPO determines that the pest risk has been mitigated.

(5) The Ecuadorian NPPO must maintain records of trap placement, checking of traps, and any 

Medfly or Anastrepha fraterculus captures. The Ecuadorian NPPO must maintain an APHISapproved quality control program to monitor or audit the trapping program. The trapping records 

must be maintained for APHIS' review.

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

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

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

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

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

consignment will be denied entry into the United States.

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

packinghouse may accept peppers only from registered approved production sites.

(8) The Ecuadorian NPPO is responsible for export certification, inspection, and issuance of 

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

certificate issued by the NPPO of Ecuador bearing the following additional declaration: “This 

consignment was produced and prepared in accordance with the requirements in the bilateral 

operational workplan.” The shipping box must be labeled with the identity of the production site. 

Efficacy of Risk Mitigation Measures

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

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

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

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

Capsicum frutescens in Costa Rica, El Salvador, Guatemala, Honduras, and Nicaragua since 

2005. No pests of quarantine significance have been intercepted by APHIS on peppers imported 

using this systems approach (AQAS, 2011). 

Thrips infestations produce visible signs of damage such as leaf curling and scorching (Natwick 

& Trumble, 2009) that are easily recognizable on inspections in Ecuador at places of production. 

Thrips can also be detected at ports of entry to the United States by inspection. Mealybugs are 

visible on inspection, and build-ups in production sites are readily detected (Frank, 2010). 

Outbreaks of Lepidoptera pests in pest exclusionary structures can be readily detected, and are 

rare under good agricultural practices. Lepidoptera larvae leave visible signs when boring into 

the pepper fruit which makes detection upon inspection likely (Eiras & Blackmer, 2003; EPPO, 

2011). Tuta absoluta may attack peppers, but they feed on the foliage and have not been 

reported boring into pepper fruits (EPPO, 2005).

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

Hennen, 2003; Lindquist, 1982) that are easily recognizable on inspections in Ecuador as well as 
at U.S. ports of entry inspections. Andean potato mottle virus was rated as medium risk potential

in the PRA, but the likelihood of establishment (contact with host material) is low. Since the

virus is not transmitted by seeds and is transmitted mainly by vectors (Diabrotica spp.) 

(Pernezny et al., 2003; USDA, 2011) with historically few vector interceptions on peppers

(USDA, 2011), APHIS considers pre-harvest inspection of the growing site an appropriate 

mitigation. If the sites are found to be infected, the Ecuadorian NPPO may allow exports from 

the production site only after the determination that the risk mitigation has been achieved.

Ecuador peppers produced under this systems approach will also be subject to packing house 

inspection and inspection by the Department of Homeland Security Customs and Border 

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

back will be accomplished by APHIS and the NPPO of Ecuador to identify and correct problems 

including removal of the packinghouse or area of production from the export program. A 

systems approach can provide an alternative to single measures to meet the appropriate level of 

phytosanitary protection, or can be developed to provide phytosanitary protection in situations in 

which no single measure is available (IPPC, 2002). Fresh peppers from Costa Rica, El Salvador, 

Guatemala, Honduras, and Nicaragua have been produced and exported to the United States 

under a systems approach for fruit flies for over four years with no interceptions of program 

pests (AQAS, 2011).

Pest-exclusionary greenhouses remove pests from production sites and culling removes damaged 

and infested/infected fruit at the packing house. As part of a systems approach these measures 

are effective at lowering pest populations. No fruit flies have been intercepted on produce 

coming from pest exclusionary structures in any of the programs for peppers or tomatoes.

Summary

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

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

phytosanitary protection for the United States. A systems approach utilizing pest-exclusion 

greenhouse as described above, employing a combination of measures acting independently, also 

mitigates risk and provides an acceptable level of phytosanitary protection. Pest-free places of 

production as well as packinghouse and port of entry inspections provide the level of 

phytosanitary security required by the United States.

Authors

Walter Gould, Senior Risk Manager

APHIS-PPQ

José R. Hernández, Senior Risk Manager

APHIS-PPQ
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