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Plant diseases threaten both food security and the botanical diversity of natural ecosystems. Substantial research effort is focused on pathogen detection and control, with detailed risk management available for many plant diseases. Risk can be assessed using analytical techniques that account for disease pressure both spatially and temporally. We suggest that such technical assessments of disease risk may not provide an adequate guide to the strategies undertaken by growers and government to manage plant disease. Instead, risk-management strategies need to account more fully for intuitive and normative responses that act to balance conflicting interests between stakeholder organizations concerned with plant diseases within the managed and natural environments. Modes of effective engagement between policy makers and stakeholders are explored in the paper, together with an assessment of such engagement in two case studies of contemporary non-indigenous diseases in one food and in one non-food sector. Finally, a model is proposed for greater integration of stakeholders in policy decisions.

The EFSA Panel on Plant Health performed a pest categorisation of Exomala orientalis (Coleoptera: Rutelidae) (Oriental beetle) for the EU. Larvae feed on the roots of a variety of hosts including most grasses and many vegetable crops. Maize, pineapples, sugarcane are among the main host plants. Larvae are particularly damaging to turfgrass and golf courses. The adults feed on flowers and other soft plant tissues (e.g. Alcea rosea, Dahlia, Iris, Phlox and Rosa). Eggs are laid in the soil. Larvae feed on host roots and overwinter in the soil. Adults emerge from pupae in the soil in May-June and are present for about 2 months. E. orientalis usually completes its life cycle in 1 year although individuals can spend two winters as larvae. Commission Implementing Regulation (EU) 2019/2072 (Annex IIA) regulates E. orientalis. The legislation also regulates the import of soil attached to plants for planting from third countries; therefore, entry of E. orientalis eggs, larvae and pupae is prevented. E. orientalis is native to Japan or the Philippine islands. It is also found in East Asia and India, Hawaii and northeastern USA. It is assumed to have reached USA via infested nursery stock. Plants for planting (excluding seeds) and cut flowers provide potential pathways for entry into the EU. E. orientalis has been intercepted only once in the EU, on Ilex crenata bonsai. Climatic conditions and the availability of host plants provide conditions to support establishment in the EU. Impacts on maize, grassland and turfgrass would be possible. There is uncertainty on the extent of the impact on host plants which are widely commercially grown (e.g. maize) Phytosanitary measures are available to reduce the likelihood of entry. E. orientalis satisfies the criteria that are within the remit of EFSA to assess for it to be regarded as a potential Union quarantine pest. Of the criteria that are within the remit of EFSA to assess for it to be regarded as a potential Union regulated non-quarantine pest, E. orientalis does not meet the criterion of occurring in the EU.

The Panel on Plant Health performed a pest categorisation of non-EU Acleris spp. Acleris is a welldefined insect genus in the family Tortricidae (Insecta: Lepidoptera). Species can be identified using taxonomic keys based on adult morphology and genitalia. The genus includes 261 species attacking conifers and non-conifer plants in many areas in the world, among which 40 species are present in the EU. The non-EU species are collectively listed in Annex IAI of Council Directive 2000/29/EC as Acleris spp. (non-European). Some species are important defoliators in North America, mainly on conifers but also on several broadleaf trees. Females lay eggs on the leaves or on the bark. The larvae bind together with silk the leaves upon which they feed. Pupation occurs in leaves attached with silk or in the soil. Some species are univoltine; others are bivoltine or multivoltine. Flight capacity is not documented, but outbreak expansion suggests that the adults can probably fly long distances. The main pathways for entry are host plants for planting with or without soil, cut branches, fruits of host plants (including cones), round wood with bark and bark. The presence of host plants and suitable EU climate would allow the establishment of the known non-EU harmful species. In the literature, nine non-EU Acleris species are reported as pests on various host plants, namely A. gloverana, A. variana, A. minuta, A. nishidai, A. issikii, A. semipurpurana, A. robinsoniana, A. senescens and A. nivisellana. These non-EU Acleris spp. satisfy all the criteria to be considered as Union quarantine pests. Concerning the other 212 non-EU Acleris species, there is scarce information on host plants, pests status and climatic suitability. Measures are in place to prevent the introduction of non-EU Acleris spp. through the pathways described in the document. As non-EU Acleris spp. are not present in the EU and plants for planting are not the major pathway for spread, non-EU Acleris spp. do not meet the criteria to be considered as regulated non-quarantine pests.

The European Commission requested EFSA to conduct a pest categorisation of Grapholita prunivora (Lepidoptera: Tortricidae), an oligophagous moth whose larvae feed mostly on leaves and fruit of different Rosaceae including cultivated apples, plums, cherries and pecans. It overwinters in soil and bark crevices of its host plants. G. prunivora has reliable identification methods, both for adults and immature stages. It occurs in North America, where it can impact pome and stone fruit production, especially when broad spectrum insecticides targeting pome and stone fruit key pests are substituted by more selective crop protection methods (i.e. mating disruption, biological control). G. prunivora is regulated in the EU by EU Directive 2000/29/EC where it is listed in Annex IIAI using the synonym Enarmonia prunivora. Plants for planting, fruit, cut branches, and bark are potential pathways. Most, but not all hosts are regulated, e.g. pecan (Carya sp.). There are no records of interception of this species on Europhyt. Biotic and abiotic conditions are conducive for establishment and spread of G. prunivora in the EU. Therefore, were G. prunivora to establish, impact on pome and stone fruit production could be expected. Considering the criteria within the remit of EFSA to assess its regulatory plant health status, G. prunivora meets with no uncertainties the criteria for consideration as a potential Union quarantine pest (it is absent from the EU, potential pathways exist, and its establishment would cause an economic impact). Given that G. prunivora is not known to occur in the EU, it fails to meet this criterion required for regulated non-quarantine pest (RNQP) status.

The Panel on Plant Health performed a pest categorisation of Arrhenodes minutus, a well-defined wood-boring insect species in the family Brentidae (Insecta: Coleoptera). It can be identified using taxonomic keys. A. minutus is only present in southern Canada and eastern USA down to Florida. The main host plants of A. minutus are species of the genera Quercus, Ulmus, Fagus and Populus. The pest larvae bore galleries in the wood, causing structural damage to the timber. The pest is also a vector of the quarantine pest Breziella (Ceratocystis) fagacearum. A. minutus most often lays its eggs in wounded parts of the trees where sap is oozing. The female bores minute holes with her snout and deposits one egg in each of them. The larvae bore a straight gallery against the grain. When the gallery nearly reaches the other side of the bole, it makes a sharp U-turn towards the point of origin. These galleries cause structural damage to the timber. The life cycle lasts generally 3 years, but some individuals develop in 2 years and a few require 4 years. The main pathways are wood and possibly plants for planting. Specific phytosanitary requirements exist for Quercus and Populus only, while Ulmus is regulated in relation to other pests. Establishment would be favoured by the wide distribution of host trees in the EU territory and by climatic conditions locally comparable to those of the pest's native range. A. minutus meets all the criteria assessed by EFSA for consideration as potential Union quarantine pest. The criteria for considering it as a potential Union regulated non-quarantine pest are not met since the species is absent from the EU.

The Panel on Plant Health performed a pest categorisation of Pseudopityophthorus minutissimus and Pseudopityophthorus pruinosus, two well-defined insect species in the family Curculionidae, subfamily Scolytinae (Insecta: Coleoptera). They can be identified using taxonomic keys. P. minutissimus is present in parts of Canada and the USA, and P. pruinosus is present in parts of the USA, Guatemala, Honduras and Mexico. The main host plants of the two species are Quercus spp., but they also attack several other genera. The two species mostly colonise weakened or dead branches but can also attack the stems. They are mostly secondary pests but they vector the oak wilt fungus, Bretziella fagacearum, which causes heavy damage in American Quercus spp. populations. The fungus is mainly transmitted by the young adults during their maturation feeding on twigs, leaf petioles and young acorn stems. The beetles are polygamous and have two generations per year in most of their range. The main pathways are wood, bark, plants for planting, cut branches, chips and wood waste. These pathways are fully or partly regulated for the genera Quercus, Castanea and Prunus. However, the pathways are not regulated for the following genera: Carpinus, Fagus, Hamamelis, Alnus. P. minutissimus and P. pruinosus meet all the criteria assessed by EFSA for consideration as potential Union quarantine pest. The criteria for considering P. minutissimus and P. pruinosus as potential Union regulated non-quarantine pests are not met since neither species are known to be present in the EU.

The EFSA Panel on Plant Health (PLH) performed a pest categorisation of Thrips palmi (Thysanoptera: Thripidae), for the EU. T. palmi is listed in Annex IAI of 2000/29 EC. Using molecular methods, cryptic speciation has been shown although no new species from the group have been formally described. Here, we consider T. palmi sensu lato as a defined species native to southern Asia, which has spread to tropical and subtropical countries in Asia, the Pacific, North, Central and South America, Africa and Australia. T. palmi has been reported from many different hosts in 20 botanical families; Cucurbitaceae, Solanaceae and Orchidaceae are of primary importance. T. palmi has been intercepted many times on plants from these families. Wild and cultivated hosts are widespread in the EU. However, as a subtropical and tropical species, only a small area of the EU provides climatic conditions where establishment may be possible outdoors. Several host plants are cultivated in glasshouses where conditions may be more favourable for establishment in year-round crops. There have been past outbreaks of T. palmi in EU glasshouses and outdoors in Portugal. T. palmi causes feeding and oviposition damage and populations in Asia are competent vectors of tospoviruses. Impacts could occur on many hosts, especially Cucurbitaceae, Solanaceae and ornamental plants particularly in glasshouses. Phytosanitary measures aim to prevent the entry of T. palmi specifically on cut flowers of Orchidaceae and fruits of Momordica and Solanum melongena. The species meets all the criteria assessed by the PLH Panel to satisfy the definition of a Union quarantine pest, while it does not satisfy all the criteria for it to be regarded as a Union regulated non-quarantine pest (RNQP)

Following a request from the European Commission, the EFSA Plant Health Panel performed a pest categorisation of Lopholeucaspis japonica (Hemiptera: Diaspididae), an armoured scale which preferentially feeds on smooth barked woody trees and shrubs. The pest occurs in Asia, North America and non-EU Europe (Caucasus region and Ukraine). The pest is regulated in Council Directive 2000/29/EC as Leucaspis japonica, a junior synonym. Its introduction into the EU is banned on plants of Citrus, Fortunella, Poncirus and their hybrids, other than fruit and seeds. Additional host plants comprise 60 species in 35 botanical families, including deciduous fruit trees, ornamental and forest plants. L. japonica could enter the EU via host plants for planting (excluding seeds) and cut branches. It has been intercepted on plants for planting from China, including artificially dwarfed plants. Spread is most likely via plants for planting, rather than via natural spread as most diaspidid life stages are sessile. Impacts could occur in citrus, other fruit crops, ornamentals and forest trees. Sourcing plants from pest-free areas, pest-free places of production or pest-free production sites would decrease the likelihood of introduction. Because suitable hosts occur across the EU in climatic areas matching those where the pest is known to occur, biotic and abiotic conditions are conducive to establishment. The main uncertainty concerns its current distribution in the EU. L. japonica was found in Greece in 1983, but there have been no other reports since then. L japonica satisfies the criteria assessed by EFSA that enable it to be considered a potential quarantine pest. L. japonica does not satisfy the criteria assessed by EFSA for it to be considered a potential regulated non-quarantine pest (RNQP).

The EFSA Panel on Plant Health performed a pest categorisation of the peach fruit moth, Carposina sasakii Matsumura (Lepidoptera: Carposinidae) for the EU. C. sasakii is not currently regulated in the EU although C. niponensis, a valid species of no economic significance that was previously mistakenly synonymised with C. sasakii, is regulated in Annex IIAI of 2000/29 EC. C. sasakii is a well-defined species that is recognised as a major pest of apples, peaches and pears in eastern China, Japan, Korea and Far East Russia. C. sasakii is not known to occur in the EU. Adult C. sasakii emerge in the spring or early summer. Eggs are laid on host fruits. Larvae burrow into the fruit to develop. Infested fruits often drop early. Larvae exit fruit and overwinter in the soil. In the more southern areas of distribution, there can be two or more generations per year. Import of host fruit provides a potential pathway into the EU. C. sasakii occurs in a range of climates in Asia, some of which occur in the EU. Wild and commercially grown hosts are available within the EU. C. sasakii has the potential to establish within the EU where there could be one or two generations per year. Impacts could be expected in apples, pears and other rosaceous fruit crops. The level of impacts would be uncertain. Phytosanitary measures are available to reduce the likelihood of introduction of C. sasakii. C. sasakii meets all the criteria assessed by EFSA PLHP to satisfy the definition of a Union quarantine pest. C. sasakii does not meet the criteria of occurring within the EU, nor plants for planting being the principal means of spread, so does not satisfy all the criteria for it to be regarded as a Union regulated non-quarantine pest (RNQP).