This is a fancy way of saying whatever we decide it is, humans excluded.
When it comes to potential agricultural pests/pathogens...I think I'm ok with that. Sorta a public health matter more than just a regulatory issue
What's the difference?
Exactly. The law, very much like its enforcement, is so overly broad, as to be virtually unenforceable. It is only when folks talk openly in public forums or smuggle with relative impunity that the responsible authorities are able to take action.
If there was a federal risk classification system, much like there is in California and other states, then there would be much more clarity and sensibility than currently exists. Unfortunately, until a sizable commercial interest can justify such a policy change, the agricultural interests of "just say no to bugs" will continue to prevail.