Policy paper

United Kingdom international action plan for plant health

Published 21 June 2023

This was published under the 2022 to 2024 Sunak Conservative government

Executive summary

Non-native plant pests, such as the bacterial pathogen Xylella fastidiosa and the emerald ash borer Agrilus planipennis, threaten the health of the UK’s plants. The likelihood of these pests being introduced into the UK has increased with the globalisation of trade and climate change. It is therefore important that we tackle this issue at a worldwide scale. By enhancing plant biosecurity internationally, and utilising information and expertise from other countries, the number of pests being introduced into this country can be reduced and their impact on the UK’s plants can be minimised.

As set out in the plant biosecurity strategy for Great Britain (2023 to 2028), the UK Plant Health Service has developed an international action plan. Within this, 21 international ambitions to help protect our plants have been agreed. These ambitions fall under 5 main areas:

Global pest monitoring

1. Support the International Plant Protection Convention (IPPC) objective of strengthening pest outbreak alert and response systems to communicate emerging pest risks.

2. Collaborate with Botanic Gardens Conservation International to augment the International Plant Sentinel Network.

3. Include plant health risks in the International Natural Hazard Forward Look (INHFL).

International standards and guidance

1. Support the IPPC objective of developing commodity and pathway specific standards, with accompanying diagnostic protocols, phytosanitary treatments and guidance.

2. Support the IPPC objective of developing guidance on the use of third-party entities to perform phytosanitary action such as treatments or inspections.

3. Assist in the development of European and Mediterranean Plant Protection Organisation (EPPO) and IPPC standards, recommendations and guidance.

Implementation, capacity development and market access

1. Support the IPPC objective of harmonisation of electronic data exchange by implementing a global system for production and exchange of electronic phytosanitary certificate information by 2030.

2. Support the IPPC objective of establishing a network of diagnostic laboratory services and diagnostic protocols to help countries identify pests in a more reliable and timely manner.

3. Support the IPPC objective of the management of e-commerce and postal and courier pathways.

4. Support the IPPC Commission of Phytosanitary Measures (CPM) recommendation ‘safe provision of food and other aid to prevent the introduction of plant pests during an emergency situation by 2023’.

5. Continue to lead in the adoption of IPPC standards and promote their use to others.

6. Advance the plant health systems of other nations, including developing countries and our overseas territories.

7. Establish markets and secure trading agreements with other countries.

Research and development

1. Support the IPPC objective of assessment and management of climate change impacts on plant health.

2. Support the IPPC objective of global phytosanitary research cooperation to accelerate the development of science to support all regulatory phytosanitary activities.

3. Engage in global research initiatives.

4. Collaborate with Defra networks and groups on international research activities.

International engagement

1. Share approaches to tackling plant health risk through interchange with plant health professionals from other countries.

2. Support the legacy of the International Year of Plant Health (IYPH).

3. Raise the profile of plant health in global One Health activities.

4. Continue UK representation on IPPC, EPPO, and European Food Safety Authority (EFSA) bodies, and increase participation in World Trade Organisation - sanitary and phytosanitary measures (WTO-SPS) events.

The activities to achieve each ambition will be monitored and evaluated by the International Workstream, which is led by the Defra International Plant Health Policy team and is composed of members from Defra, Animal and Plant Health Agency (APHA), Forestry Commission (FC), and the Devolved Administrations. Formal progress reviews will be carried out every 6 to 12 months by the Defra Risk and Horizon Scanning team. The first review will start in spring 2023 and the final review will be carried out in autumn 2025.

Introduction

Non-native plant pests, which are injurious to plants and plant products and include species such as the bacterial pathogen Xylella fastidiosa and the emerald ash borer Agrilus planipennis, threaten the health of the UK’s plants.

The likelihood of these pests being introduced into the UK has increased with the globalisation of trade, as the volume and diversity of plants, plant products and other objects entering the UK has grown. The risk has also increased with climate change, as the climate of the UK has become more suitable for the establishment and spread of non-native species and as new trade pathways have opened up due to global changes in plant distribution and production.

It is therefore more important than ever that we tackle this issue at a worldwide scale. By enhancing plant biosecurity internationally, and utilising information and expertise from other countries, the number of pests being introduced into this country can be reduced and their impact on plants can be minimised.

The Defra Group International Strategy outlines the need to maintain and enhance UK standards in plant health and build on our leading roles in the International Plant Protection Convention (IPPC) and the European and Mediterranean Plant Protection Organization (EPPO). More recently, the Plant biosecurity strategy for Great Britain (2023 to 2028) has recognised that international activities and representation are essential to monitoring and assessing risks, surveying for pests, and preparing for outbreaks.

The UK Plant Health Service consists of the four UK governments and several supporting agencies and bodies, including:

• the Animal and Plant Health Agency (APHA)
• the Forestry Commission (FC)
• Fera Science Ltd
• Forest Research (FR)
• SASA
• Natural Resource Wales (NRW)
• Agri-Food and Bioscience Institute (AfBI)

The UK Plant Health Service has agreed 21 international ambitions to help protect our plants. This document sets out the 21 ambitions in detail and provides a summary of the activities that will be carried out to achieve them.

These ambitions cover 5 main areas:

Global pest monitoring

Plant pests are regularly spreading within and between continents, and it is important that we can track their spread accurately and quickly to make necessary changes to our phytosanitary arrangements.

International standards and guidance

International and regional standards and guidance produced by the IPPC, Regional Plant Protection Organisations (RPPOs) and other regional bodies have an influence over the behaviour of National Plant Protection Organisations (NPPOs). By helping to develop these standards and guidance, we can seek to strengthen them so that they reflect our shared values and achieve the best outcomes.

Implementation, capacity development and market access

The likelihood of plant pests entering the UK is in part influenced by the plant health biosecurity of other countries. If plant pests can enter and spread in other countries, the number of pathways into the UK potentially increases and the pest pressure on those pathways rises. By supporting the implementation of plant health regulations, and developing capacity, in other countries, we help to protect the health of plants abroad and those in our own country. Improving plant health biosecurity in other countries also allows us to open markets and secure trade agreements.

Research and development

The UK is a world leader in science and research, and it is looking to develop its science expertise even further and cement the country as a ‘science superpower’. In the area of plant health, we face a number of complex, transboundary issues which need strong international partnerships to solve them. Widening our reach and growing our reputation in science and research will also create further opportunities for collaboration.

International engagement

The UK is respected internationally for maintaining high standards and for the depth and quality of its technical expertise. It is important that this continues in plant health and that we grow our international reputation even further to ensure we are involved in relevant global conversations and can promote good biosecurity to others.

Delivery and supporting groups

Under the IPPC, the UK is required to establish an NPPO. The NPPO is responsible for a range of activities, including phytosanitary certification, surveillance, pest risk analysis, and risk management. Defra represents the UK as the NPPO in international and European forums. To ensure policies and regulations are coordinated across the UK, the four UK governments host regular official meetings via the NPPO.

The activities that the NPPO is responsible for are carried out by the UK Plant Health Service, and members of this Service will lead on and deliver the UK’s international action plan for plant health through to the end of 2025. These members will be supported by groups inside and outside the UK Plant Health Service.

Ambitions

Global pest monitoring

1. Support the IPPC objective of strengthening pest outbreak alert and response systems to communicate emerging pest risks.

The UK will support the development of a global pest alert system that accurately tracks pest presence around the world. This will allow NPPOs to adjust their phytosanitary measures to minimise the likelihood of introducing and spreading plant pests. The UK will endeavour to provide timely reports of outbreaks to the IPPC, EPPO and relevant countries.

In cases where pests are introduced, the UK will support the development of a response system that provides surveillance and response tools, funds, expertise and resources to other NPPOs. Some of the tools that have been worked on by the UK include the IPPC inspection e-learning course and a guide for developing contingency plans for outbreaks of quarantine pests.

2. Collaborate with Botanic Gardens Conservation International to augment the International Plant Sentinel Network.

The UK will support collaboration between botanic gardens and arboreta, NPPOs and plant health scientists, through the International Plant Sentinel Network (IPSN). This network will provide an early warning system regarding known plant pests of concern and potential new risks.

Host plants of UK importance will be monitored in other countries, initially through a pilot programme in Australia and New Zealand and later in other countries. Emerald ash borer, a plant pest of particular concern, is also being monitored in more than 9 countries in Eastern Europe.

Training resources translated into 12 languages are being provided to support and develop national capacity to survey for emerald ash borer, and to raise awareness of the beetle in the botanic garden and arboreta community.

Image courtesy of Lara Salido.

An image of someone from Fera Science Ltd giving training outdoors to a group of people on the use of emerald ash borer traps. They are holding an emerald ash borer trap which is a long, multi funnel trap that can be hung in trees. The trap is made of a series of funnels hung together with a collection cup at the bottom.

3. Include plant health risks in the International Natural Hazard Forward Look (INHFL).

The aim of the INHFL is to track the presence of natural hazards overseas, including extreme weather events and human and animal diseases, to provide early warning to UK government departments and their partners. This allows for quicker decision making with respect to emergency aid and other support. The UK Plant Health Service will aim to include plant pests that threaten food security in third countries into the INHFL, better allowing the UK to provide timely assistance to these countries in future.

International standards and guidance

4. Support the IPPC objective of developing commodity and pathway specific standards, with accompanying diagnostic protocols, phytosanitary treatments and guidance.

The UK will support the development of commodity-specific standards that expedite trade negotiations between countries. These standards will provide NPPOs with a list of pests associated with a commodity and a set of recommended phytosanitary measures to control these pests, supporting pest risk analysis activities and decisions on import measures. The UK will also identify suitable commodities for standards through the EPPO Global Phytosanitary Affairs Panel, which is responsible for circulating information and developing harmonised views and positions for NPPOs in the EPPO region on all matters relating to the IPPC.

5. Support the IPPC objective of developing guidance on the use of third-party entities to perform phytosanitary action such as treatments or inspections

It is common practice for NPPOs to use unofficial third-party entities, such as the trade, to perform phytosanitary actions like inspections and diagnosis. Where these are carried out, they should be performed to the same standards as when performed in an official capacity. The UK will support the drafting of guidance to ensure best practice is maintained.

The UK will promote the use of third-party entities by continuing:

• the Plant Health Exports Audited Trader Scheme (PHEATS), which facilitates the export of fruit, vegetables and cut flowers to the EU and Northern Ireland by allowing traders to carry out inspections themselves, and
• the grain export scheme, which facilitates the export of grain by allowing authorised trade inspectors to carry out inspections of grain as it is loaded onto ships.

Work will also be carried out to develop other third-party entity schemes and to ensure that these schemes are managed in a consistent fashion.

6. Assist in the development of EPPO and IPPC standards, recommendations and guidance

Under the WTO-SPS agreement, countries are encouraged to establish plant health measures that are consistent with international standards and guidance, particularly those in relation to the IPPC. The UK will strengthen these standards and guidance through supporting their development in international panels and groups and through timely and considered comments to EPPO and the IPPC.

Implementation, capacity development and market access

7. Support the IPPC objective of harmonisation of electronic data exchange by implementing a global system for production and exchange of electronic phytosanitary certificate information by 2030

Phytosanitary certificates provide proof that a consignment being exported to another country meets the phytosanitary requirements of that country. Exchanging phytosanitary certificates electronically, rather than using paper versions, will help to expedite trade in plants and plant products, reduce transaction costs, and eliminate fraud. To ensure that the system is sustainable, the UK has explored options for long-term funding on behalf of the European region. The UK will also promote the system by implementing electronic phytosanitary certification.

The 3 core elements of the electronic phytosanitary certificate (ePhyto) system are:

• a Hub to facilitate the transfer of ePhytos between NPPOs
• the GENS (Generic ePhyto National System), which is a web-based system that can produce and receive ePhytos, to allow countries that do not have a national electronic system to produce, send and receive ePhytos
• harmonization through the use of standardised mapping, codes and lists

8. Support the IPPC objective of establishing a network of diagnostic laboratory services and diagnostic protocols to help countries identify pests in a more reliable and timely manner

The UK will continue to actively participate in many international diagnostic networks, including those in EPPO and Euphresco, putting the country in a good position to advise on the development of a global network.

9. Support the IPPC objective of the management of e-commerce and postal and courier pathways

E-commerce and postal and courier pathways provide a means of introducing and spreading plant pests. Coordinated international efforts will be made to:

• raise awareness of the risks to NPPOs, consumers, the public and other stakeholders
• apply risk management and legislative measures to identify and control risks
• share information and collaborate with other national border agencies and national postal operators to address pest risks
• monitor the risk of e-commerce and postal and courier pathways

The UK will provide feedback on guidance and awareness raising materials developed and will support global initiatives through participation on relevant international groups. The UK will also aspire to manage e-commerce, postal and courier pathways domestically in line with international guidance.

10. Support the IPPC Commission of Phytosanitary Measures (CPM) recommendation ‘safe provision of food and other aid to prevent the introduction of plant pests during an emergency situation by 2023’

Within the CPM recommendation, NPPOs are encouraged to:

• develop and maintain response plans and undertake preparedness activities to reduce the risk of introducing plant pests in the event of an emergency
• raise awareness of the pest risk associated with food aid with relevant stakeholders
• partner with relevant stakeholders to reduce pest risk associated with food aid
• agree treatment options and/or pre-clearance of food aid to expedite clearance in the receiving country
• establish mechanisms of providing information between all relevant parties
• encourage that food aid from other contracting parties meets the phytosanitary requirements of their country

There is also the intention to develop an international standard on this topic. The UK will analyse the feasibility of implementing a standard and, if agreed, support its development through participation on various international groups.

11. Continue to lead in the adoption of IPPC standards and promote their use to others

The UK will encourage the use of IPPC standards by other countries by following these standards for plant health activities. The UK will also actively participate in the IPPC standard setting process and highlight its importance to other NPPOs.

12. Advance the plant health systems of other nations, including developing countries and our overseas territories

Through collaboration with other government departments and international organisations, the UK Plant Health Service will strengthen capabilities, such as diagnostics and risk analysis, of developing countries and our overseas territories. Programmes of work are being scoped out in Africa, Asia and the Middle East.

Image courtesy of Chris Malumphy, Fera Science Ltd.

An image of microscope training on a biosecurity enhancement course in Road Town, Tortola, British Virgin Islands.

To ensure that the UK Plant Health Service is targeting the most appropriate countries and carrying out technical assistance work in the most effective way, an internal strategy will be developed.

13. Establish markets and secure trading agreements with other countries

The availability and diversity of plants and plant products in the UK and other countries will be increased through the establishment of trade agreements. As part of this process, the UK Plant Health Service will work with cross departmental trade forums, agricultural attaches, UK trade, and other government departments, to identify and develop market opportunities and progress market access applications.

Research and development

14. Support the IPPC objective of assessment and management of climate change impacts on plant health

The IPPC Action Plan on Climate Change Impacts on Plant Health (2022 to 2025) was approved at the 2022 session of the CPM. This action plan consists of 3 main outcomes:

• awareness on the impacts of climate change on plant health is improved
• risks of climate change to plant health are evaluated and managed
• enhanced recognition of phytosanitary matters in the international climate change debate

The UK will support the delivery of the plan through participation on the IPPC Focus Group on Climate Change and the IPPC Focus Group on Strategic Framework Development Agenda Items. Simultaneously, the UK Plant Health Service will be contributing to the UK National Adaptation Plan for climate change, which sets the actions that government and others will take to adapt to the challenges of climate change in the UK.

15. Support the IPPC objective of global phytosanitary research cooperation to accelerate the development of science to support all regulatory phytosanitary activities

Existing international research coordination mechanisms will be explored to better understand how research resources can be utilised. Depending on the results of this work, an international phytosanitary research collaborative structure may be established. The UK will provide advice on this objective through participation on relevant international groups.

16. Engage in global research initiatives

Engagement in international research initiatives ensures UK Research & Development (R&D) is fully linked up with complementary research and it benefits from access to cutting edge knowledge and techniques, which can then be applied in the UK.

UK researchers will participate in Euphresco, Horizon Europe and other international projects, and will demonstrate their scientific expertise by publishing peer reviewed scientific papers. Projects which are currently being delivered include investigations into diagnostic and surveillance techniques, exploration of pest biology, and research into biological control.

Photo courtesy of Fera Science Ltd © Crown Copyright.

An image of acoustic monitoring on a tree, part of research carried out for a previous Euphresco project. The image shows a black cuff attached round the trunk of a tree, which is a sensor used to detect sounds inside the bark which indicate pests.

16. Collaborate with Defra networks and groups on international research activities

Participation in appropriate meetings discussing international science gives the UK Plant Health Service an opportunity to promote plant health R&D and collaborate with other teams. The UK will raise awareness of plant health within Defra through participation on the International Science Network, Group Evidence Science and Analysis Committee (GESAC) sub-committees and other relevant groups across government.

International engagement

18. Share approaches to tackling plant health risk through interchange with plant health professionals from other countries

Encouraging dialogue with plant health professionals from other countries ensures that the UK is involved in relevant global conversations and can influence the behaviour of others for the benefit of global plant biosecurity.

The UK will strengthen relationships with other countries and bodies through interchange programmes in the Colorado Beetle Campaign Committee, the Commission on Phytosanitary Measures, and the USA. Last year, a member of the UK Plant Health Service carried out a secondment in the Canadian Food Inspection Agency.

19. Support the legacy of the International Year of Plant Health (IYPH)

Two legacies that have emerged from the IYPH are National Plant Health Week and the International Plant Health Conference. National Plant Health Week has been created to raise awareness and build relationships around the importance of plant health and biosecurity and has been timed to support the International Day of Plant Health. The UK Plant Health Service will provide a structure of themed days each year.

The first International Plant Health Conference took place in London in September 2022 and demonstrated a global commitment to raising the profile of plant heath, sharing intelligence and creating opportunities for collaboration. The UK worked closely with the IPPC Secretariat to organise the conference.

20. Raise the profile of plant health in global One Health activities

One Health refers to 2 related ideas:

• the concept that the health of humans, animals, plants and the environment we live in are inextricably linked and interdependent.
• the collaborative and sustained effort of multiple disciplines working locally, nationally, regionally, and globally to attain optimal health for all living things and the ecosystem in which they co-exist.

Plants are an important part of One Health, and it will be important for plant health to be engaged with One Health, to benefit from cross-team working and participate in relevant projects.

The UK Plant Health Service will support One Health through participation on government One Health groups and aid in its operationalisation. The UK will also progress the One Health conversation at the global level by supporting discussions at the EPPO Panel of Global Phytosanitary Affairs and the CPM.

21. Continue UK representation on IPPC, EPPO, and European Food Safety Authority (EFSA) bodies, and increase participation in WTO-SPS events

The UK is respected internationally for maintaining high standards and for the depth and quality of its technical expertise. It is important that this continues in plant health and that we grow our international reputation even further to ensure we are involved in relevant global conversations and can promote good biosecurity to others.

The UK will continue to be engaged with most relevant panels and groups in the IPPC and EPPO and will participate in WTO-SPS events where appropriate. To ensure continuity of representation, training will be provided to the UK Plant Health Service on the various international groups and the value of participating on them.

Monitoring and evaluation

The activities described in this framework will be monitored and evaluated by the International Workstream, which is led by the Defra International Plant Health Policy team and is composed of members from Defra, APHA, FC, and the Devolved Administrations. The international workstream reports to the UK NPPO Group, which provides oversight of the UK’s plant health programme.

Formal progress reviews will be carried out every 6 to 12 months by the Defra Risk and Horizon Scanning team. The first review will start in spring 2023 and the final review will be carried out in autumn 2025. These formal reviews will identify areas at risk and will recommend mitigations. Outside of these formal reviews, the International Workstream will monitor the progress of the framework using an action log, risk log and Red-Amber-Green (RAG) ratings and will make decisions to support the delivery of the international action plan where necessary.

As activities in the international action plan are progressed, relevant colleagues and stakeholders will be informed by the International Workstream, for awareness and in case any input is required.