California's Medfly Infestation (MEDFLY Case)

     CASE NUMBER:        301
     CASE MNEMONIC:      MEDFLY
     CASE NAME:          California's Medfly Infestation

A.  IDENTIFICATION

1.  The Issue

     Since 1975 California has experienced a growing problem in
their ability to export produce grown in the southern agricultural
region.  This problem has been caused by a small fly known as the
Mediterranean Fruit Fly, or more commonly as the medfly.  Because
of the fly's proficient reproductive cycle and its appetite for
numerous types of fruits and vegetables, the eradication of this
"pest" is quite difficult.  This problem and the attempts to solve
it has gained much attention and support in California, the United
States, and other areas of the globe.  This is due to the fact that
countries of the Pacific Rim, especially Japan and China, will not
import the produce if medfly larva have been detected in any of the
shipped quantities.  These countries also will not allow the
produce to enter their country if an outbreak of the medfly has
been reported in California.  The current debate in California
centers around the type of medfly infestation how it will effect
the amount of trade that will occur between California and the
countries of the Pacific Rim.

2.  Description

     In the past two and a half decades California has been faced
with a large, and often very controversial, insect infestation
problem.  The annual appearances of the Mediterranean Fruit Fly, or
medfly as it is more commonly known, has caused a heated debate as
to the future of California's agricultural exports as well as the
danger to the populace and the environment through the use of
potentially harmful chemical insect sprays.  Nearly every summer
since 1975, California's farmers, agricultural exporters, and
government officials have argued among themselves, and with their
global trading partners, about the danger of the small, and
otherwise harmless, medfly.  Groups, with a varied of personal
interests at stake, have sided along differing ideological lines as
to whether the medfly is a new and increasing threat or an old, but
only recently recognized, problem.  Included within this debate is
the role of man-made chemicals, which are potentially harmful to
humans and the environment, used to eradicate this insect.  The
problem has received national and international attentions due to
the large amounts of monies involved with the trade of agriculture
from California with the rest of the world.  To determine the
extent of the problem it is important to examine the various sides
to the debate and offer background on why this small insect has
been able to create such controversy.

      California currently exports over one billion dollars worth
of fruit and vegetables to other countries.  This is in addition to
the large quantity of produce sold domestically, as well as to
neighboring countries.  An exact estimate of the total sales of
California produce is not known, but it is believed to average
almost two billion dollars a year--depending on the size of the
harvest and the quality of the goods grown.  When an outbreak of
the medfly becomes public, many nations refuse to receive
Californian produce until the insect has been eradicated from the
goods.  These nations, especially those along the Pacific Rim, look
to other regions to supply the agricultural goods and often
continue to be wary of importing California's produce even after
the medfly outbreak has been contained.  As one of the largest and
most populated regions in the U.S., the harmful effects on
California's agricultural and business sectors, and the economy in
general, can injury the entire U.S. economy.  As exports slump and
citizens begin to feel the effects of lost revenue, political
leaders experience direct pressure to solve the problem in whatever
way is quickest and easiest.  To best the medfly problem,
California's state assembly and governmental institutions, such as
the California Department of Food and Agriculture (CDFA) and the
U.S. Department of Agriculture (USDA), attempt to use whatever
means necessary to exterminate the medfly, and therefore alleviate
political pressure.

      Up until 1990, the CDFA had extensively used the spraying of
Malathion (a potent and potentially carcinogenic insect spray) to
kill off the medfly.  In 1990 the public, fearful of the effects of
Malathion on the environment as well as themselves, pressured the
State assembly to ban its use.  With the removal of the Malathion
option many experts have stated that the medfly problem has gotten
worse.  Agricultural experts and entomologists specializing in the
medfly occurrences have divided themselves into two separate camps
and debate the effectiveness of the other methods used to stop the
medfly outbreaks.  One side believes that the use of sterile flies,
chemical scents, and traps, while not as good as the aerial
spraying of chemical repellents, is working to curb the outbreak
frequencies.

     The other side argues that the possibility of effectively
eliminating the medfly is nearly impossible and that there has been
little evidence that these alternative eradication methods are
effective.  In addition to the debate on eradication methods is
another issue which is increasingly dividing the participants. 
This issue, the view of the medfly as a native inhabitant of
California verses the view that the fly outbreaks are due to the
importation of tainted produce entering Southern California from
abroad influences decisions on future import, export, and trade
policies.  The "permanent resident" verses the "annual
reintroduction" theories divide California's policy makers and
scientists into two separate, hostile camps.  Each side spouts
supporting evidence and tries to discredit the views of the other. 
Both sides are so diametrically opposed that there is little common
ground between them.  They both agree, however, that the medfly is
a large problem to the future of California's agricultural sector
and general economy.

     An outbreak of the medfly is said to have occurred after the
larva have metamorphisized into hungry, young adults and begin to
be seen swarming in orchards or are found in soft, rotten fruit. 
The medfly mates, reproduces, and lays their eggs in the fruits or
vegetables native to dry, Mediterranean-like region.  The climate
in southern California is nearly identical to the fly's homeland--
the areas surrounding the Mediterranean Sea and so it is little
surprise that each outbreak is extensive and increasingly damaging. 
The female medfly lays approximately 1000 eggs at a time and the
real produce destruction comes from the larva eating the host
fruit, and then spreading to neighboring fruits, until they are
ready to metamorphisize.  As the reproduction to maturity cycle is
short, the process continues over and over again creating a new
"family" of the flies quite often.  The medfly's life span is
approximately 40 days long, so over an entire summer the medfly
population increases exponentially as the produce decreases by a
similar but lesser amount.

     Historically scientists and officials have taken the view that
the medfly arrives from another country through agricultural items
shipped or smuggled into California.  The people receiving the
produce discover that the goods have been damaged (rotten, mushy,
fly-ridden, etc.) and throw the produce away.  It is thought that
a few of the medfly are able to survive long enough to take up
residence in a nearby orchard or garden.  With this initial
foothold established the medfly continues its reproductive cycle
and begins to inhabit larger and larger numbers of neighboring
produce.  Eventually a vast number of the flies are visibly present
and a "medfly state of emergency" is declared.  The CDFA and Medfly
Advisory Board are called in to begin ground spaying (workers in
hazardous material protection suits spray trees in the infected
area by hand) and chemical air spraying (pre-1990 dumping of
Malathion through crop dusting aircraft).  The groups also release
genetically altered sterile flies, and set out fly traps with a
chemical lure in hopes of containing and eliminating the fly
population before it grows and moves on to another orchard,
vineyard, garden, or crop.  Usually, by this stage, it is too late
to stop the outbreak and the medfly exterminators must try to
contain the insect as best they can.  The exterminators must wait
until the contained areas are free of the "pest" before the state
of emergency can be lifted.  Once the emergency has been rescinded,
goods can continue to be harvested and shipped abroad.

      Some local scientists and entomologists argue that there is
good reason for other nations to be wary of importing tainted
California produce because the medfly may have become a permanent
resident to the state's orchards through similar importation
processes.  They argue that evidence suggests that the medfly
arrived from Hawaii, or more likely Mexico and Brazil, and has
permanently established itself in the region.  Increasing evidence
suggests that this view of the medfly establishing itself in
California may be correct.  However, the theory of annual
reintroduction of the medfly is supported by very little evidence,
but continues to be the primary view of events by government
officials.  Whether the medfly outbreaks are due to reintroduction
or permanent residency in California, the government officials use
similar methods to stop the spread of the medfly.  The USDA and the
CDFA then call for a quarantine of the area plus an additional 100
square miles around the "source".  Now CDFA workers are only
allowed to ground spray with permission from the property owners. 
After a period of a few days of no detection of the fly in traps,
in produce, etc. the quarantine was rescinded and the goods from
that area are able to be sold and shipped again.

     Reinstating the use of Aerial spraying has been lobbied for by
agricultural farmers because of its effectiveness and low cost. 
Ground spraying and the other current eradication methods, have
been shown to be significantly more expensive and less effective in
eliminating the medfly.  The increases in cost due to these labor
intensive eradication methods have raised the prices of produce to
levels which international importers cite as a reason for
purchasing produce from regions other than California.  Farmers and
agricultural exporters insist that these claims are used as a way
for nations to break trade agreements or protect domestic
agriculture markets.  It is alleged that some nations use the fear
of medfly infestation as a way to entice other nations to lower the
price of their goods to fill the vacuum left by the exclusion of
California's goods.

      While many U.S. scientists and government officials disregard
the newer permanent residency theory, foreign importers take it
seriously.  The trade implications for the acceptance of this view
are extensive.  If the medfly is a permanent species addition to
California then other nations will be unwilling to import any
agricultural goods coming from this region.  Mexico, Brazil,
Algeria, and Spain all have had indefinite quarantines placed on
specific goods due to the medfly having permanently established
itself in those regions.  If this view is expanded to California a
large segment of exportation and trade will be lost to the state. 
The anxiety, to producers and others who receive income from the
agricultural sector, caused by over this theory has already been
witnesses.

     In 1990 James Carey, an entomologist at the University of
California at Davis, went before the California State Assembly and
told the representatives of his theory of the permanent residency
of the medfly.  This announcement caused an economic backlash as
Japan, and other Pacific Rim countries, threatened to stop
importing California's produce entirely.  It also caused a 
significant division among the members of the Medfly Advisory
Council to which various scientists, including Dr. Carey, CDFA and
USDA representatives belong.  For example Isi Siddiqui, an
assistant director of the CDFA and in charge of the state medfly
program has asked "Does Dr. Carey have any new data? Because I
returned from China last summer [1992], a potential $200 million
market for California, and they won't buy our produce based on this
irresponsible perspective from Dr. Carey".  In addition to the loss
of revenue to California's agricultural sector there is a
significant political aspect to the residency theory.  If Dr. Carey
is correct, and the infestations experienced in California are not
caused by tainted produce from outside the state, then the Advisory
Council could lose much of its funding.

      Each time a state of emergency or quarantine is enacted
during an outbreak the state Assembly allocates emergency funding
to the Medfly Advisory Council for the eradication process.  This
is usually a significant amount, for example, California spent $40
million dollars in 1981 fighting the medfly.  With funding based on
the theory of new, reintroduced, potentially controllable outbreaks
each summer, the Council receives a significant increase in its
budget.  If the theory of the medfly's entrenchment in California
is accepted, the Assembly would not be able to provide "emergency"
funds and would most likely earmark the eradication money to
another agency that would research another way of removing the
insect.  This loss of emergency revenue would greatly decrease the
CDFA's budget and would cost many Advisory Council employees their
income and/or jobs.  Dr. Carey has implied that the Advisory
Council is overlooking his theory and research so that they will
continue to receive "emergency" funding.

      Many researchers find it fascinating that this little insect,
who has evolved into an effective and efficient survivor, is
causing so much trouble to the people of California as well as
other regions of the globe.  These medfly disputes, over the loss
of revenue and trade, can be compared to other environmental and
trade problems all around the globe.  Beside the extensive focus on
the trade problems are the arguments involving the use of harmful
chemicals to save the livelihoods of many Americans tied to the
exportation of goods abroad.  Malathion is thought to be a
dangerous chemical with experiments linking it to increases in
cancers and to harming the reproductive cycles of animals.  If the
agricultural farmers succeed in overturning the 1990 ban on its use
in aerial spraying how will this effect the region's ecosystem? 
How will it effect the health of the citizens how live in the
region?

     The release of thousands and thousands of sterile medflies can
upset the region's ecosystem as well.  The flies provide food to
other animals whose population also increases due to the wealth of
available food.  The populations of insect-eating birds and frogs,
and other insect-eating insects (spiders, scorpions, etc.) have
been increasing.  These changes continue up the food chain ladder
as well as nature's balance and the other, higher-order species in
the region.

      California's Mediterranean Fruit Fly infestation problem is
linked to many trade and environmental problems and disputes.  The
question of how one can strike a balance between nature and
economic pursuit is complex as can be seen in the intricacies
involving this small pest.  Its life span may be short but the
debate and controversy it has created will have repercussions far
into the future.  As agricultural trade is brought up for review in
the upcoming Asia-Pacific Economic Conferences (APEC) and in the
North Atlantic Free Trade Agreement (NAFTA), the potential use of
the medfly as a protectionist barrier could be likely.  As
environmental and trade decisions are made, the view of the
importance of economics and profit verses the sustaining of the
environment will involve issues such as California's medfly
dilemma.

3.  Related Cases:  

	1. NEMATODE
	2. BALLAST
	3. APPLE
	4. HAWAII

Keyword Clusters

               1.  USA
               2.  FRUIT
               3.  INFEST

4.  Draft Author: Christopher Duvall (May, 1996)

B.  LEGAL CLUSTER

5.  Discourse and Status: DISagree and INProgress

     California Department of Food and Agriculture (CDFA) is in the
process of studying the type of infestation it experiences.  The
testing, through DNA mitochondrial analysis, will point to which
eradication methods and state legislature funding approval.

6.  Forum and Scope: California, USA and UNILATeral

7.  Decision Breadth: 1 (United States)

     The trade of fruits and vegetables to other countries is also
a factor in this case.

8.  Legal Standing: SUBLaw
     
     Only law on the books dealing with the medfly is the
prohibition of aerial spraying with Malathion.  The disagreement of
dealing with the medfly problem is strictly on a state agency
level.

C.  GEOGRAPHIC CLUSTER

9.  Geography: a) NAMER
               b) WESTERN NAMER
               c) USA

10.  Subnational Factors: NO

11.  Type of Habitat: DRY

D.  TRADE CLUSTER

12.  Type of Measure: Import Ban

     If the medfly is ruled as a permanent inhabitant of California
the verdict could cause countries to ban importation for safety
reasons.  Japan stopped importation of produce on a number of
occasions.  China has done so only twice.

13.  Direct vs. Indirect:     INDirect

     The ruling will be made and generally limited to California
but the effect of U.S. agriculture exportation and the effect on
the California economy could be quite large.

14.  Relation of Measure to Environmental Impact

     a) Directly Related:   YES Fruit and vegetables
     b) Indirectly Related: YES Chemical pesticides
     c) Not Related:        NO
     d) Process Related:    YES  Infestation

15.  Trade Product Identification: Fruit

     The medfly can use a number of different types of produce as
a host.  From grapes, plums, peaches, pears, apples to citrus type
fruit of oranges, lemons, grapefruit to vegetables like tomatoes,
squash, zucchini the medfly has different larva incubation times. 
In tomatoes it is shortest, approximately seven days and in grapes,
longest, it is around twelve days.  The female medfly lays over
1000 eggs in a single host and as the larva grow they enter
neighboring fruit and feed and grow.

16.  Economic Data

     A single summer infestation can run the state of California as
much as $40 million for the ground spraying of Malathion, the
release of thousands of sterile male flies, and the placement of
thousand of traps with chemical lures.  Since 1980, with the first
large, measurable outbreak, the state spends approximately $14
million a year in medfly eradication methods.  This large amount of
money is easily offset by the export potential of the produce.  The
Chinese market has the potential of around $200 million a year in
sales.  Japan's average purchase of $80 million is, of course, less
but it has hovered at this level since the 1960s.

17.  Impact of Measure of Trade Competitiveness: Medium

18.  Industry Sector:  FOOD

19.  Exporter and Importer: USA and MANY

E.  ENVIRONMENTAL CLUSTER

20.  Environmental Problem Type: INFESTATION

21.  Name, Type, and Diversity of Species

     Name: Mediterranean Fruit Fly (Ceratitis capitata)
     Type: Insect
     Diversity: Very prevalent in tropic and temperate zones

22.  Resource Impact and Effect: LOW and PRODuct

23.  Urgency and Lifetime: HIGH and  40 days

24.  Substitutes: Regulation

F.  OTHER FACTORS

25.  Culture: NO

26.  Human Right: NO

27.  Trans-Border: NO

28.  Relavant Literature

"Fly Wars", Discover, Feb. 1993, Vol. 14(2), pp. 42-53

"Is the invading medfly eligible for California residency?",
Bioscience, Jan. 193, Vol. 43(1), pp. 3-6.

"Narrative Analysis for the Policy Analyst: A Case Study of the
1980-1982 Medfly Controversy in California", Journal of Policy
Analysis and Management, Spring 1989, Vol. 8(2), pp. 251-273