Biosecurity problem representation(s) by tree and forest health actors in Southeast Asia

Tree and forest biosecurity policies and practices are evolving in response to changing and growing threats. While much research is reflected in the literature on solving the problem(s) of biosecurity, less has been written about how the problem is represented. We analysed how the problem of tree and forest biosecurity is represented by researchers, quarantine and government officials in Southeast Asian countries. Foremost, we find, is a problem representation of protecting trees and forests from pest and disease threats, driven by the movement of goods and people across borders, for social and ecological benefits. Inside this problem representation there is an elaboration of technical and administrative challenges—what we call ‘inner’ problems. Away from these inner problems, however, we find less engagement with contextual issues in the problem representation—‘outer’ problems. These outer problems of social, economic and political aspects of the biosecurity problem are pivotal to understanding biosecurity's central dilemma, that is, conducting trade and movement of people while managing the risk of pest and disease spread. Representing biosecurity as a technical and administrative problem alone consolidates the idea of biosecurity as a problem only for experts. Here, we argue this representation should be challenged when a growing body of biosecurity research and policy discussion points to the need for relational, networked and shared responsibilities in biosecurity systems. Paying attention to how biosecurity is problematised, inner and outer, provides an opportunity to support policymakers and practitioners in developing diversified forest biosecurity social networks. • Biosecurity issues are framed as ‘inward’ looking technical and administrative challenges. • This inward focus can overlook broader social, economic and political contexts. • This inward focus makes biosecurity a domain for experts alone, excluding others. • This undermines shared responsibility and more networked and inclusive biosecurity.