Bananas from the Philippines

Trading partners can request that Australia consider alternative measures for various reasons. For example, if new treatments or other measures are identified that could manage a biosecurity risk.

As a member of the World Trade Organization (WTO)*, Australia must consider trading partners’ requests for imports.

Australia is also entitled to maintain a level of protection we consider appropriate to protect life or health within our territory. This is called the appropriate level of protection (ALOP).

An assessment of alternative measures is a rigorous, technical, science-based process conducted in accordance with the requirements of the Biosecurity Act 2015 and international standards.

We remain committed to upholding Australia’s biosecurity status and protecting domestic industries from pest and disease threats.

We will only agree to alternative measures if our assessment concludes the measures effectively manage the biosecurity risks associated with importing bananas from the Philippines to achieve Australia’s ALOP.

*Australia has been a WTO member since 1995. The WTO is an international organisation that deals with global trade rules between countries. Its main function is to ensure that trade between countries flows as smoothly, predictably and freely as possible. By being a member of the WTO, Australia gets fair market access to other countries, which is of great benefit to Australia, as our economy relies heavily on exports.

In 2018, the Philippines formally requested Australia consider alternative measures for 3 main pathogens of concern (Moko, black Sigatoka and banana freckle).

In March 2025, the Philippines requested Australia consider access for an additional cultivar (‘GCTCV-218 – also known as ‘Formosana’) and an additional export province (Davao de Oro in the Davao Region or Region 11).

Since we received the Philippines request in 2018, we have been conducting a preliminary review of the request to inform our assessment.

We have now allocated the resources to progress the assessment.

We are notifying stakeholders now ahead of conducting the assessment and consulting with stakeholders on a draft report.

The Philippines have requested Australia consider alternative measures to those proposed in the 2008 import risk analysis, but have not provided specific details on proposed alternative measures. The Philippines have requested that we consider its commercial production practices as part of these measures.

We are working with the Philippines to ensure we have a thorough understanding of its commercial production practices to inform our assessment.

Our assessment will determine if the commercial production practices manage the biosecurity risks to achieve Australia's appropriate level of protection (ALOP) and if not, if there are additional measures that would reduce the risk to achieve ALOP.

As part of the assessment, departmental officers will visit the Philippines in late 2025 to see their banana growing practices first-hand to better understand the risks, controls and feasibility of potential risk management measures.

Once we complete the initial assessment, we will release a draft report for public consultation. At that stage, you will be able to provide feedback on any recommended alternative measures.

The risk management measures proposed in 2008 for the 3 pathogens of concern (Moko, black Sigatoka and banana freckle) are available in the 2008 final import risk analysis report. The proposed measures included areas of low pest prevalence in combination with commercial production practices such as fungicide spray, visual inspection and trash minimisation. The proposed measures were not definitive, and critical aspects of their composition and application were not specified.

Finalisation of the measures was contingent on the Philippines defining which combination of measures would be used, demonstrating their efficacy and proposing how the measures would be implemented, as well as further review and approval by Australia.

The costs and technical challenges involved in demonstrating efficacy meant it was likely not feasible for the Philippines to meet this requirement.

The Philippines contested the validity of the measures, considering them to be 'very stringent, expensive and trade restrictive'.

Accordingly, the risk management measures proposed in the 2008 Philippine bananas import risk analysis were never finalised with the Philippines within an operational workplan. Consequently, no trade has occurred.

Our assessment will follow a rigorous, technical, science-based process conducted in accordance with the requirements of the Biosecurity Act 2015 and international standards.

One option that may be appropriate for the assessment would be to conduct a Biosecurity Import Risk Analysis (BIRA). We are considering this option, but no decision has been made. The decision to conduct a BIRA is a decision for the Director of Biosecurity (the Secretary of the department) or the Minister for Agriculture.

We will notify all stakeholders once a decision is made.

More information on how we conduct a BIRA is available on our website.

As a WTO member, Australia is entitled to maintain a level of protection we consider appropriate to protect life or health within our territory. This is called appropriate level of protection (ALOP).

Australia is required to apply ALOP under the requirements of the Biosecurity Act 2015 when assessing biosecurity risk.

Australia’s ALOP is expressed as providing a high level of protection for plant, animal and human life and health aimed at reducing risk to a very low level, but not to zero.

If Australia was to take a zero-risk approach to biosecurity this would mean we would have no tourists, no international travel and no imports.

We undertake a risk analysis to assess the biosecurity risk associated with importing plants and plant products. This is a rigorous, technical, science-based process conducted in accordance with the requirements of the Biosecurity Act 2015 and international standards.

In summary, our risk analysis process involves the following steps:

• We identify and categorise potential quarantine pests that could be present on the plant or plant products being imported.
• We then assess the likelihood of each pest entering, establishing and spreading in Australia.
  • For likelihood of entry, factors we consider include the likelihood that a pest will arrive in Australia in a viable state, the pest will be distributed in a viable state and then transfer to a susceptible host.
  • For likelihood of establishment, factors we consider include the pest’s lifecycle, host range, survival, vectors and environmental conditions.
  • For likelihood of spread, factors we consider include the intended use of the commodity and the potential for natural or human-assisted spread of the pest.
• We determine the overall likelihood of entry, establishment and spread by using a matrix of rules to combine the individual likelihood ratings.
• We evaluate the potential consequences of a pest, if it were to enter, establish and spread by considering direct and indirect impacts on factors including plant health, the environment, eradication and control costs, non-commercial values and domestic and international trade across different geographic levels.
• Finally, we determine the unrestricted risk of a pest by combining the overall likelihood of a pest entering, establishing and spreading in Australia and the overall consequence
  • the unrestricted risk is the level of risk that would be present if there were no risk management measures in place
  • the final rating will either be extreme, high, moderate, low, very low or negligible.

If the unrestricted risk is determined to be higher than ‘very low’, this does not meet Australia’s ALOP. So, we then determine whether there are risk management measures which would reduce the biosecurity risk to meet Australia’s ALOP.

More information on how we conduct plant import risk analyses is available on our website.

This assessment is considering the biosecurity risks associated with the importation of banana fruit from the Philippines. On-farm biosecurity practices in commercial banana growing production areas in Australia are important in managing biosecurity risks in these areas.

We cannot require that the Philippines adopt Australia’s on-farm biosecurity standards in their production.

However, our assessment will determine if the Philippines’ commercial production practices manage the biosecurity risks to achieve Australia's appropriate level of protection (ALOP) and if not, if there are additional measures that would reduce the risk to achieve ALOP.

Panama disease Tropical Race 4 (TR4) will be considered in the assessment of alternative measures. It is still considered a quarantine pest for Australia as it is limited in distribution (Northern Territory and a small number of properties in Queensland) and under official control.

From 17 September 2025, we will hold virtual and in-person information sessions for stakeholders to explain the assessment process, how we will engage you and answer any of your questions. For more information and to register, visit our Humanitix event page.

In the first half of 2026 (timing subject to change), we will release an issues paper that outlines the assessment process in more detail. It will also provide background information on the Philippines’ requests, what will be considered during the assessment and how and when stakeholders will be engaged.

Once the initial assessment is complete, we will release a draft report for a minimum 60-calendar day public consultation period.

We will then release a final report which will take into consideration all comments received during consultation on the draft report.

We remain committed to upholding Australia’s biosecurity status and protecting our domestic industries and environment from pest and disease threats.

We will only agree to alternative measures if our assessment concludes that the measures effectively manage the biosecurity risks associated with importing bananas from the Philippines to achieve Australia’s appropriate level of protection (ALOP).

Australia is required to apply ALOP under the Biosecurity Act 2015 and as a member of the World Trade Organization (WTO) when conducting risk assessments.

Australia’s ALOP is expressed as providing a high level of protection for plant, animal and human life and health aimed at reducing risk to a very low level, but not to zero.

If Australia was to take a zero-risk approach to biosecurity this would mean we would have no tourists, no international travel and no imports.

Australia accepts imports only when the department is confident the risks of pests and diseases can be managed to achieve Australia’s ALOP.

Australia’s appropriate level of protection (ALOP) is expressed as providing a high level of protection for plant, animal and human life and health aimed at reducing risk to a very low level, but not to zero.

The definition of ALOP was agreed to by the Australian Government and all state and territory governments. It is prescribed in the Biosecurity Act 2015. We apply the same definition of ALOP in all our import risk analyses.

We conduct import risk analyses to assess the biosecurity risk associated with the import of a particular animal, plant or animal/plant product. If the biosecurity risk does not achieve Australia’s ALOP, imports will not be allowed unless suitable measures can be identified that will reduce the risk to achieve ALOP.

More information on ALOP is available on our website.

As a member of the World Trade Organization, Australia is obliged to consider requests for market access from trading partners. This includes requests for alternative measures.

Australia relies on the international trade rules and standards to support our position as a major global exporter of agricultural goods.

It is important that we respond to this request within the accepted international trade framework to reinforce to all our trading partners that we are a trustworthy partner in international trade. In the same way, other countries are obliged to respond to Australia’s market access requests.

Where possible, we must develop import conditions that achieve Australia’s appropriate level of protection (ALOP), are scientifically justified, and do not unreasonably restrict trade.

In 2002, the Philippines lodged a trade dispute with the WTO (DS270) regarding measures affecting horticultural imports to Australia, including bananas. The case remains dormant, but the Philippines can request recommencement at any time and a panel could convene within 10 days.

Importantly, we won’t compromise on biosecurity to allow trade.

We acknowledge that there is a strong supply of domestically grown horticultural produce and that imports of agricultural goods can directly compete with Australian agricultural goods.

However, the Biosecurity Act 2015 and Australia’s international trade obligations mean that assessments of biosecurity risks that may be associated with a commodity cannot take into account the potential economic impact of market competition, or the net national benefit resulting from imports.

When carrying out a pest risk assessment, we examine the potential economic impact of pests and diseases if they were to enter, establish and spread in Australia, as a result of importing a product.

Where possible, Australia (as a WTO member) must develop import conditions that address any associated risks, are scientifically justified and do not unreasonably restrict trade.

Where the risk of the imports cannot be reduced to an acceptable level, we will not permit those imports.

Trading partners use the same principles when assessing Australian market access requests.

In 2018, the Philippines formally requested Australia consider measures alternative to those recommended in the 2008 Philippine bananas import risk analysis to manage Moko, black Sigatoka and banana freckle.

• In response to this, we are conducting a scientific assessment for these 3 pathogens.
• As part of the process, we will investigate whether there have been any changes to the biosecurity risk posed by the importation of Cavendish bananas from the Philippines since the risk analysis was completed in 2008.
• This includes consideration of any new scientific information and of the commercial production practices that may affect the biosecurity risk, and whether any new biosecurity risks have emerged.

In March 2025, the Philippines requested Australia consider an additional Cavendish cultivar (‘GCTCV-218’ or ‘Formosana’) and an additional export province (Davao de Oro in the Davao Region or Region 11) that were not assessed in the 2008 import risk analysis. We will consider this request at the same time as the assessment of alternative measures.

• The 2008 Philippine banana import risk analysis was unusual in that the scope was restricted to specific provinces. Generally, our risk analyses cover the whole exporting country. The same is true for the assessed commodity: generally we assess the entire species not individual cultivars.
• It is not unreasonable for the Philippines’ to request this additional cultivar and additional export province. It is also not out of keeping with our standard import risk analysis approach.
• We will determine whether the new cultivar and export province potentially pose any different biosecurity risks to those identified in the 2008 Philippine bananas import risk analysis and the current assessment.
• We will make sure that any such risks are considered and managed appropriately, if needed.

Yes, this assessment will apply to 5 cultivars of Cavendish bananas, in line with the market access request from the Philippines.

We will only agree to alternative measures if our assessment concludes the measures effectively manage the biosecurity risks associated with importing bananas from the Philippines to achieve Australia’s ALOP.

Once the assessment of alternative measures is complete and provided the biosecurity risk can be effectively managed to achieve Australia’s ALOP, there are several further steps required before trade could commence. This includes verifying that the Philippines can meet the import requirements.

There would then be a number of further steps required before import conditions are published and trade could commence.

Due to the complexity of this assessment, the full process could take several years.

If imports commence, the feasibility of trade ultimately depends on Australian consumers.

Consumers can make informed decisions about what they buy based on quality, price and country of origin specified in labelling laws.

Australia’s expert biosecurity scientists will assess the biosecurity risks associated with importing bananas from the Philippines. We will only agree to alternative measures if our assessment concludes the measures effectively manage the biosecurity risks to achieve Australia’s appropriate level of protection, or ALOP.

As part of the assessment of alternative measures, departmental officers will visit the Philippines in late 2025 to see their banana growing practices first-hand. This will give us a better understanding of the risks, controls and the alternative measures proposed by the Philippines. We will also assess the Philippines’s Bureau of Plant Industry’s role as the National Plant Protection Organisation and the systems they have in place for certifying that any exports meet Australia’s conditions.

If the final report recommends that the importation of bananas from the Philippines can be safely permitted, before any trade can begin, Australia will work with the Philippines to set out the requirements for the export of bananas to Australia to ensure safe trade.

This includes verifying that all risk management measures are applied effectively and consistently.

In March 2025, the Philippines requested Australia consider an additional Cavendish cultivar ‘GCTCV-218’ or Formosana, that was not assessed in the 2008 Philippine banana import risk analysis.

The Philippine banana import risk analysis was unusual in that the scope was restricted to specific cultivars. Generally, our risk analyses assess the entire species not individual cultivars. It is not unreasonable for the Philippines to request this additional cultivar.

Differences between cultivars typically have few implications for biosecurity risk. However, in some instances differences in the plants’ biological characteristics may mean cultivars have different susceptibility to pests, or the symptoms of infection/infestation may express differently. Such differences could affect the relative potential for a pest to be associated with an imported commodity.

Given the length of time since the 2008 publication of the import risk analysis, we will determine whether the new cultivar potentially poses any different biosecurity risks to those identified in the 2008 import risk analysis. We will make sure that any such risks are considered and managed appropriately, if needed.

All food sold in Australia must meet Australia’s food standards.

Australian law requires that all food, including imported fresh fruit, must meet the standards set out in the Australia New Zealand Food Standards Code, the food laws of each state and territory, and the requirements of the Imported Food Control Act 1992.

The same food safety laws that apply to domestic food also apply to imported food.

Imported fruit may also need to meet commercial sale requirements mandated by a retail store. These requirements are usually determined by each retailer. Australian retailers manage a range of requirements under their supply standards assurance programs, which they can apply to Australian and imported food. It is not the department’s role to comment on these requirements.

Considerations of modern slavery, ethical employment, occupational health and safety (OH&S) and environmental standards are outside the scope of the biosecurity assessment of alternative measures for bananas from the Philippines.

The Philippines and Australia are both members of the International Labour Organisation (ILO). As ILO members, Australia and the Philippines are obligated to uphold the commitments outlined in the ILO Declaration of Fundamental Principles and Rights at Work and its Follow-up (1998). These include overseeing fair and responsible employment practices and ensuring a safe and healthy working environment across all industries in their countries.

The Australian Government is committed to ensuring the supply chains we use do not promote, condone or financially support modern slavery. The Australian Government has various laws, policies and international agreements in place regarding modern slavery and fair and responsible employment practices. This includes the Modern Slavery Act 2018.

In the context of Australia’s trade relations with the Philippines, matters relating to labour and workplace practices fall under the responsibility of the Department of Foreign Affairs and Trade.

Independent experts are unable to attend our in-country visit to the Philippines. Our discussions with the Philippines throughout the assessment process are government-to-government. This includes when we are undertaking the technical visit. This is the same principle applied when Australia is seeking market access to other countries.

We are well experienced in reviewing and understanding horticultural export supply chains. We have a thorough process in place and experienced risk assessors, auditors and an experienced plant pathologist who will attend the visit.

We will use the information obtained on the visit, in conjunction with information from multiple other sources, to assess the biosecurity risk and identify appropriate risk management measures if applicable.

A critical part of the assessment process is consulting experts to ensure our understanding is correct. We will consult with a range of internal and external stakeholders throughout the assessment process, and we value their input and expertise. We are committed to continuing to seek stakeholder involvement at appropriate points in the process.

The primary mechanism for industry and technical experts to engage on the assessment is during our public consultation period on the draft report. Once we have conducted the assessment, we will release a draft report for a minimum 60-calendar day public consultation period. We will consider all comments received when preparing the final report.

We also invite stakeholders to contribute scientific information relevant to this assessment at any time by emailing plantstakeholders@aff.gov.au.

Yes, our plant pathologist who will be attending the technical visit to the Philippines in late 2025 has extensive experience in surveillance and identification of tropical plant diseases, including in bananas.

We will use the information obtained on the visit, in conjunction with information from multiple other sources, to assess the biosecurity risk and identify appropriate risk management measures if applicable.

A critical part of our assessment process is consulting experts to ensure our understanding is correct. We will consult with a range of internal and external stakeholders throughout the assessment process.

We are engaging closely with the Philippines to organise the technical visit planned for late 2025. We will visit several plantations and packing houses that currently export Cavendish bananas, in multiple Cavendish banana growing regions on Mindanao. We have requested that we see different companies and different scales of operation.

We acknowledge that there are variations in production practices and that best practice may not be applied consistently at all locations. We take this into consideration when using observations from the visit in the assessment.

The primary purpose of the visit is to understand what practices are used. It is only one source of information we use to assess the risk, in line with international standards.

The assessment of alternative measures is only for fresh Cavendish banana fruit for human consumption from the Philippines. It does not include a review of any other banana commodities.

All permitted banana commodities (imported processed banana products, or banana (Musa species) propagative plant material for use as nursery stock) must meet Australia’s biosecurity import conditions as set out in our Biosecurity Import Conditions System (BICON).

Fresh banana leaves are not permitted entry to Australia.

Separately from the assessment of alternative measures for bananas from the Philippines, we are currently reviewing import conditions for banana nursery stock. This review will evaluate the pest risk associated with banana tissue culture and consider if updated post-entry quarantine (PEQ) testing requirements are necessary to best protect the industry against new banana diseases.

PEQ services for imported banana nursery stock are being transitioned from the Queensland Department of Primary Industries (QDPI) to our PEQ facility and the Victoria state government's AgriBio facility. We are working with QDPI and AgriBio to minimise any potential disruptions to PEQ services and to the banana industry.

We are also in the final stages of a permit assessment for the import of live cultures of Fusarium oxysporum f. sp. cubense, the causative agent of Panama disease, for in vitro research in high level biosecurity containment. The import has been endorsed by industry as it will support research to improve diagnostics and management of the disease in Australia.

For more information, please contact us at: plantstakeholders@aff.gov.au.

Webinar transcript: Assessment of alternative measures for bananas from the Philippines – 17 September 2025

• Download PDF 223 KB
• Download Word 247 KB

If you have difficulty accessing these files, contact us for help.

Webinar slides: Assessment of alternative measures for bananas from the Philippines - 17, 19 and 24 September 2025

• Download PDF 1 MB

If you have difficulty accessing these files, contact us for help.

Download

Department of Agriculture, Fisheries and Forestry, March 2009.

Fact sheet - Biosecurity policy determination for bananas

Biosecurity Advice – Biosecurity policy determination - March 2009

Download

Department of Agriculture, Fisheries and Forestry, November 2008.

Final import risk analysis report for the importation of Cavendish bananas from the Philippines – Part A - November 2008 (PDF 389 KB)

Final import risk analysis report for the importation of Cavendish bananas from the Philippines – Part B - November 2008 (PDF 2.1 MB)

Final import risk analysis report for the importation of Cavendish bananas from the Philippines – Part C - November 2008 (PDF 2.8 MB)

Biosecurity Advice – final import risk analysis report - November 2008

Fact sheet – final import risk analysis report – November 2008 (DOCX 61 KB)

If you have difficulty accessing these files, contact us for help.