Draft report for the non-regulated analysis of existing policy for fresh strawberry fruit from the Republic of Korea

5

6Pest risk management

This chapter provides information on the management of quarantine pests identified with an unrestricted risk level that does not achieve Australia’s appropriate level of protection (ALOP). The proposed risk management measures are described in this chapter.

6.1Pest risk management measures

Pest risk management evaluates and selects options for measures to reduce the risk of entry, establishment or spread of quarantine pests for Australia where they have been assessed to have an unrestricted risk have been assessed to have an unrestricted risk level that does not achieve the ALOP for Australia. In calculating the unrestricted risk, existing commercial production practices in Korea have been considered, as have post-harvest procedures and the packing of fruit.

In addition to Korea’s existing commercial production practices for strawberries and minimum border procedures in Australia, specific pest risk management measures, including operational systems, are proposed to achieve the ALOP for Australia.

In this chapter, the Australian Government Department of Agriculture and Water Resources has identified risk management measures that may be applied to consignments of strawberries sourced from Korea. Finalisation of the import conditions may be undertaken with input from the Australian states and territories as appropriate.

6.1.1Pest risk management for quarantine pests

The pest risk assessments identified the quarantine pests listed in Table 5.1 as having an as having an unrestricted risk level that does not achieve the ALOP for Australia. Therefore, phytosanitary measures are required to manage the risks posed by these pests.

Table 5. Risk management measures proposed for quarantine pests for strawberries from Korea

Pest	Common name	Measures
Arthropods
Frankliniella intonsa (EP)	Eurasian flower thrips	Visual inspection and, if detected, remedial action a
Frankliniella occidentalis (EP, NT)	Western flower thrips
Tetranychus kanzawai (EP, WA)	Kanzawa spider mite
Drosophila suzukii (EP)	Spotted wing drosophila	Area freedom b OR Fruit treatment considered to be effective against all life stages of Drosophila suzukii (such as: methyl bromide fumigation or irradiation)
Pathogens
Xanthomonas fragariae	Angular leaf spot	Area freedom b OR Systems approach

a Remedial action (by QIA) may include applying approved treatment of the consignment to ensure that the pest is no longer viable or withdrawing the consignment from export to Australia. b Area freedom may include pest free areas, pest free places of production or pest free production sites. EP (existing policy) pests that have previously been assessed by Australia and import policy already exists. NT pests of quarantine concern for Northern Territory. WA pest of quarantine concern for Western Australia.

Risk management measures proposed here build on the import conditions for strawberries from California, USA and from New Zealand (Department of Agriculture and Water Resources 2016a), as well as for other fruit commodities such as nectarines from China (Australian Government Department of Agriculture and Water Resources 2016) and table grapes from Korea (Biosecurity Australia 2011b), which contain the conditions for the pest species or groups identified in this risk analysis. The import conditions for D. suzukii are based on the final pest risk analysis report for D. suzukii document (Department of Agriculture 2013).

Trade in strawberries from the California, USA and from New Zealand to Australia has taken place for over twenty years.

The risk management measure options proposed in this draft report are consistent with the existing policies and include:

visual inspection and remedial action for spider mite and thrips

area freedom or fruit treatment (such as methyl bromide fumigation or irradiation) for spotted wing drosophila

area freedom or a systems approach approved by the Australian Government Department of Agriculture and Water Resources for angular leaf spot.

Management for Frankliniella intonsa, Frankliniella occidentalis and Tetranychus kanzawai

To manage the risks from Frankliniella intonsa (Eurasian flower thrips), Frankliniella occidentalis (western flower thrips) and Tetranychus kanzawai (Kanzawa spider mite), the Australian Government Department of Agriculture and Water Resources proposes visual inspection and, if detected, remedial action as a measure for these pests. The objective of the proposed visual inspection is to ensure that any consignments of strawberries from Korea infested with these pests are identified and subjected to appropriate remedial action. The appropriate remedial action will reduce the risk associated with these pests to at least ‘very low’, which would achieve the ALOP for Australia.

Proposed measure: Pre-export visual inspection and, if detected, remedial action by QIA.

All strawberry fruit consignments for export to Australia must be inspected by QIA and found free of these quarantine arthropod pests. Export consignments found to contain any of these pests must be subject to remedial action. Remedial action may include withdrawing the consignment from export to Australia or, if available, apply approved treatment of the export consignment to ensure that the pest is no longer viable.

Management for Drosophila suzukii

Options recommended to manage this pest in the final pest risk analysis report for D. suzukii (Department of Agriculture 2013) include area freedom or fruit treatment considered to be effective against all life stages of D. suzukii (such as methyl bromide fumigation or irradiation).

Proposed measure 1: Area freedom

The requirements for establishing pest free areas or pest free places of production or pest free production sites are set out in ISPM 4: Requirements for the establishment of pest free areas (FAO 1995) and ISPM 10: Requirements for the establishment of pest free places of production and pest free production sites (FAO 1999).

Drosophila suzukii is widespread in Korea (Asplen et al. 2015; CABI 2016; Lee 1966) as it is native to the East Asia region (Walsh et al. 2011); therefore, pest free areas may not be a viable option for Korea. However, since Korean strawberries for export to Australia are grown in greenhouses, there may be potential to establish pest free production sites.

Should Korea wish to use area freedom as a measure to manage the risk posed by D. suzukii, QIA would need to provide Australia with a submission demonstrating area freedom for consideration by the Australian Government Department of Agriculture and Water Resources.

If area freedom could be demonstrated, the likelihood of importation of this pest with strawberries would be reduced to at least ‘extremely low’. The restricted risk would then be reduced to at least ‘very low’, which would achieve the ALOP for Australia.

Proposed measure 2: Methyl bromide fumigation

The Australian Government Department of Agriculture and Water Resources reviewed efficacy data in support of methyl bromide fumigation treatment (listed below), and considered it suitable to manage the risk of D. suzukii in strawberries. The treatment is:

40 grams per metre cubed for three hours at a pulp temperature of 18 °C or greater.

Proposed measure 3: Irradiation

Irradiation treatment is considered a suitable measure option for D. suzukii (Follett, Swedman & Price 2014). The Australian Government Department of Agriculture and Water Resources recommends a treatment schedule of 150 gray minimum absorbed dose, consistent with ISPM 28 Annex 7: Irradiation treatment for fruit flies of the family Tephritidae (generic) (FAO 2009). Although lower doses (78 gray) have been shown to induce sterility of all immature life stages associated with fruit, adults can successfully emerge from irradiated pupae. The detection of a sterilised D. suzukii post border would result in regulatory actions. A dose of 150 gray would make adult emergence from irradiated fruit an unlikely event.

Management for Xanthomonas fragariae

The Australian Government Department of Agriculture and Water Resources proposes area freedom or a systems approach as measures for Xanthomonas fragariae.

Proposed measure 1: Area freedom

Area freedom is a measure which may be applied to manage the risk posed by Xanthomonas fragariae. The requirements for establishing pest free areas or pest free places of production or pest free production sites are set out in ISPM 4: Requirements for the establishment of pest free areas (FAO 1995) and ISPM 10: Requirements for the establishment of pest free places of production and pest free production sites (FAO 1999).

Should Korea wish to use area freedom as a measure to manage the risk posed by these pathogens, QIA would need to provide Australia with a submission demonstrating area freedom for consideration by the Australian Government Department of Agriculture and Water Resources.

If area freedom could be demonstrated, the likelihood of importation of these pathogens with strawberries would be reduced to at least ‘extremely low’. The restricted risk would then be reduced to at least ‘negligible’, which would achieve the ALOP for Australia.

Proposed measure 2: Systems approach

A systems approach that uses the integration of different risk management measures, at least two of which act independently, and which cumulatively achieve the required level of phytosanitary protection, could be used to reduce the risk of Xanthomonas fragariae being imported to Australia with consignments of strawberries. More information on a systems approach is set out in ISPM 14: The use of integrated measures in a systems approach for pest risk management (FAO 2002).

The Australian Government Department of Agriculture and Water Resources considers a systems approach could be based on area of low pest prevalence, a combination of greenhouse preventative measures and monitoring, and pest control, with post-harvest measures. The approach could be used to progressively reduce the risk of infected strawberries being imported to Australia.

Should Korea wish to use a systems approach as a measure to manage the risk posed by this pathogen, QIA would need to submit a proposal outlining components of the system and how these components will address the risks posed by this pathogen. The Australian Government Department of Agriculture and Water Resources will consider the effectiveness of any system proposed by QIA.

6.1.2Consideration of alternative measures

Consistent with the principle of equivalence detailed in ISPM 11: Pest risk analysis for quarantine pests (FAO 2013), the Australian Government Department of Agriculture and Water Resources will consider any alternative measure proposed by QIA, providing that it manages the target pest to the ALOP for Australia. Evaluation of such measures will require a technical submission from QIA that details the proposed measures and includes suitable information to support the efficacy.

6.2Operational system for the maintenance and verification of phytosanitary status

A system of operational procedures is necessary to maintain and verify the phytosanitary status of strawberries from Korea. This is to ensure that the proposed risk management measures have been met and are maintained.

6.2.1A system of traceability to source greenhouses

The objectives of the recommended requirement are to ensure that:

strawberries are sourced from greenhouses producing commercial quality fruit.

greenhouses from which strawberries are sourced can be identified so investigation and corrective action can be targeted rather than applying it to all contributing export greenhouses in the event that live pests are intercepted.

It is recommended that QIA establishes a system to enable traceability back to the greenhouse where strawberries for export to Australia are sourced. QIA would be responsible for ensuring that export strawberry growers are aware of the pests of quarantine concern to Australia and control measures.

6.2.2Registration of packing house and treatment providers and auditing of procedures

The objectives of the procedure are to ensure that:

strawberries are sourced only from packing houses and treatment providers processing commercial quality strawberries approved by QIA

treatment providers are capable of applying a treatment that suitably manages the target pests.

Export packing houses are registered with QIA before commencement of harvest each season. The list of registered packing houses must be kept by QIA. QIA is required to ensure the registered packing houses are suitably equipped and have a system in place to carry out the specified phytosanitary activities. Records of QIA’s audits would be made available to the Australian Government Department of Agriculture and Water Resources upon request.

Where strawberries undergo treatment prior to export, this process must be undertaken by the treatment providers that have been registered with and audited by QIA for the purpose. Records of QIA’s registration requirements and audits are to be made available to the Australian Government Department of Agriculture and Water Resources upon request.

Approval for treatment providers is subject to suitable systems to ensure compliance with the treatment requirements. This may include:

• 
  documented procedures to ensure strawberries are appropriately treated and safeguarded post treatment
  
• 
  staff training to ensure compliance with procedures
  
• 
  record keeping procedures
  
• 
  ensuring facility and equipment is suitable
  
• 
  QIA’s system of oversight of treatment application.
  

6.2.3Packaging and labelling

The objectives of this recommended procedure are to ensure that:

strawberries proposed for export to Australia and all associated packaging is not contaminated by quarantine pests or regulated articles (defined in ISPM 5: Glossary of phytosanitary terms (FAO 2015a)).

unprocessed packaging material, for example unprocessed plant material ─ which may vector pests identified as not being on the pathway and pests not known to be associated with strawberries ─ is not imported with the strawberries.

all wood material used in packaging of strawberries complies with the Australian Government Department of Agriculture and Water Resources conditions

secure packaging is used during storage and transport to Australia to prevent re-infestation and escape of pests on arrival to Australia. Packaging must meet Australia’s general import conditions for fresh fruits and vegetables, available on the Australian Government Department of Agriculture and Water Resources website

the packaged strawberries are labelled with sufficient identification information for the purposes of trace-back. This may include:

For treated product: the treatment facility name/number and treatment identification number.

For strawberries where the measures include area freedom: the greenhouse number.

For strawberries where phytosanitary measure is applied at the packing house: the packing house number.

Export packing houses and treatment providers (where applicable) must ensure packaging and labelling are suitable to maintain phytosanitary status of the export consignments.

6.2.4Specific conditions for storage and movement

The objective of this recommended procedure is to ensure that the quarantine integrity of the commodity during storage and movement is maintained.

Strawberries for export to Australia that have been treated and/or inspected must be kept secure and segregated at all times from any fruit for domestic or other markets, untreated/non-pre-inspected product, to prevent mixing or cross-contamination.

6.2.5Freedom from trash

All strawberries for export must be free from trash (for example, stem and leaf material, seeds, soil, animal matter/parts or other extraneous material) and foreign matter. Freedom from trash will be confirmed by the inspection procedures. Export lots or consignments found to contain trash or foreign matter should be withdrawn from export unless approved remedial action such as reconditioning is made available and applied to the export consignment and then re-inspected.

6.2.6Pre-export inspection and certification by QIA

The objectives of this recommended procedure are to ensure that:

Australia’s import conditions have been met

all consignments have been inspected in accordance with official procedures for all visually detectable quarantine pests and other regulated articles (including soil, animal and plant debris) at a standard 600 unit sampling rate per phytosanitary certificate, or equivalent

an international phytosanitary certificate (IPC) is issued for each consignment upon completion of pre-export inspection and treatment to verify that the relevant measures have been undertaken offshore

each IPC includes:

a description of the consignment (including traceability information)

details of disinfestation treatments (for example, methyl bromide fumigation) which includes date, concentration, temperature, duration, and/or attach fumigation certificate (as appropriate)

other statements may be required. These may include:

certifying the minimum dose of irradiation treatments

certifying area freedom/systems approaches or other phytosanitary requirements.

6.2.7Verification by the Australian Government Department of Agriculture and Water Resources

The objectives of this recommended procedure are to ensure that:

all consignments comply with Australian import requirements

consignments are as described on the phytosanitary certificate and quarantine integrity has been maintained.

On arrival in Australia, the Australian Government Department of Agriculture and Water Resources will assess documentation to verify that the consignment is as described on the phytosanitary certificate, that required phytosanitary procedures have been undertaken, and that product security has been maintained.

To verify that biosecurity status of consignments of strawberries from Korea meets Australia’s import conditions, the Australian Government Department of Agriculture and Water Resources completes a verification inspection of strawberry consignments on arrival. The Australian Government Department of Agriculture and Water Resources will randomly sample 600 unit per phytosanitary certificate.

The detection of any quarantine pest or regulated article for Australia would require suitable remedial action

6.2.8Remedial action(s) for non-compliance

The objectives of remedial action(s) for non-compliance are to ensure that:

any quarantine pest or regulated article is addressed by remedial action, as appropriate

non-compliance with import requirements is addressed, as appropriate.

Any consignment that fails to meet Australia’s import conditions must be subject to a suitable remedial treatment (if one is available), destroyed or re-exported.

Separate to the corrective measures mentioned, there may be other breach actions necessary depending on the specific pest intercepted and the risk management strategy put in place against that pest in the protocol.

If the commodity is repeatedly non-compliant, the Australian Government Department of Agriculture and Water Resources reserves the right to suspend imports (either all imports or imports from specific pathways) and conduct an audit of the risk management systems. Imports will recommence only when the Australian Government Department of Agriculture and Water Resources is satisfied that appropriate corrective action has been undertaken.

6.3Uncategorised pests

If an organism, including contaminant pests, is detected on strawberries either in Korea or onarrival in Australia that has not been categorised, it will require assessment by the Australian Government Department of Agriculture and Water Resources to determine its quarantine status and whether phytosanitary action is required.

Assessment is also required if the detected species was categorised as not likely to be on the import pathway. The detection of any pests of quarantine concern not already identified in the analysis may result in remedial action and/or temporary suspension of trade while a review is conducted to ensure that existing measures continue to provide the appropriate level of protection for Australia.

6.4 Review of processes

6.4.1Verification of protocol

Prior to or during the first season of trade, the Australian Government Department of Agriculture and Water Resources will verify the implementation of agreed import conditions and phytosanitary measures including registration, operational procedures and treatment providers, where applicable. This may involve representatives from the Australian Government Department of Agriculture and Water Resources visiting areas in Korea that produce strawberries for export to Australia.

6.4.2Review of policy

The Australian Government Department of Agriculture and Water Resources reserves the right to review the import policy after the first year of trade or when there is reason to believe that the pest or phytosanitary status in Korea has changed.

QIA must inform the Australian Government Department of Agriculture and Water Resources immediately on detection in Korea of any new pests of strawberry that are of potential quarantine concern to Australia.

6.5 Meeting Australia’s food laws

Imported food for human consumption must comply with the requirements of the Imported Food Control Act 1992, as well as Australian state and territory food laws. Among other things, these laws require all food, including imported food, to meet the standards set out in the Australia New Zealand Food Standards Code (the Code).

The Australian Government Department of Agriculture and Water Resources administers the Imported Food Control Act 1992. This legislation provides for the inspection and control of imported food using a risk-based border inspection program, the Imported Food Inspection Scheme. More information on this inspection scheme, including the testing of imported food, is available from the department’s Imported Food Inspection Scheme website.

Food Standards Australia New Zealand (FSANZ) is responsible for developing and maintaining the Code, including Standard 1.4.2 - Agvet chemicals. This standard is available on the Federal Register of Legislation or through the FSANZ website.

Standard 1.4.2 and Schedules 20 and 21 of the Code set out the maximum residue limits (MRLs) and extraneous residue limits (ERLs) for agricultural or veterinary chemicals that are permitted in food, including imported food.

Standard 1.1.1 of the Code specifies that a food must not have, as an ingredient or a component, a detectable amount of an Agvet chemical or a metabolite or a degradation product of the Agvet chemical; unless expressly permitted by the Code.

Anyone may apply to change the Code whether they are an individual, organisation or company. The application process, including the explanation of establishment of MRLs in Australia, is described at the FSANZ website.