United States 

Department of 

Agriculture

Animal and 

Plant Health 

Inspection 

Service

July 2013

Analysis in Support of Certification that the 

Rule will not have a Significant Economic 

Impact on a Substantial Number of Small 

Entities

Final Rule

APHIS-2011-0019

IN 0579-AD46

Importation of Jackfruit, Pineapple, and 

Starfruit from Malaysia into the Continental 

United States

Policy & Program Development

Policy Analysis & Development
i

Summary

APHIS is amending the fruits and vegetables regulations to allow imports of fresh 

pineapple, jackfruit and starfruit with stems from Malaysia into the continental United States 

under certain phytosanitary requirements. The United States is a net importer of tropical fruits in 

general and pineapple in particular. These fruits can only grow in limited numbers in 

greenhouses or in the State of Hawaii. In 2006, U.S. production of pineapples (i.e., in Hawaii) 

was 188,000 metric tons of pineapples. Since then, there are not data published for production of

tropical fruits. Between 2003 and 2012, the United States imported an average of 689,000 metric 

tons of fresh pineapples annually. In 2012, the United States imported 925,000 metric tons of 

fresh pineapples, which were valued at $513 million. The declining pineapple production in 

Hawaii is augmented by U.S. imports from Asian countries, Mexico, and Central America.

The government of Malaysia proposed to export to the United States around 2,500 metric 

tons of fresh pineapple, 1,500 metric tons of fresh jackfruit, and 3,000 metric tons of fresh 

starfruit annually. With respect to average annual U.S. imports of pineapples, the proposed 

amount consists of less than 0.4 percent of U.S. imports of pineapples. There are not trade data 

for the other two fruits to compare.

U.S. entities most likely to be directly affected by the proposed rule are importers and 

wholesale merchants of fresh fruits and vegetables (NAICS 424480). There are not official data 

available on the number of importers and wholesale merchants by specific fresh fruit.

Assuming that the percentage of small entities importing fresh pineapples, jackfruit, and starfruit 

into the United States is approximately the same as the percentage of small entities importing all 

fresh fruits and vegetables, and given the fact that, in 2007 nearly 95 percent (4,207 of 4,437) of 

fruit and vegetable wholesale establishments that operated the entire year were small by SBA 
ii

standards, then nearly all of the entities that may be affected positively by the proposed rule are 

small. Even though these entities would be affected positively, none of the effects of the final 

amendments on them would be economically significant due to the small volume of the proposed 

imports from Malaysia. Under these circumstances, the Administrator of the Animal and Plant 

Health Inspection Service has determined that this action, if promulgated, will not have a 

significant economic impact on a substantial number of small entities.
iii

Table of Contents

Summary.............................................................................................................................. i

Introduction............................................................................. .................................1

Potential Impact on Small Entities.................... ..................................................4

Appendix.............................................................................................. 6
1

Introduction 

The government of Malaysia requested APHIS permission to export fresh fruits of 

pineapple (Ananas comosus (L), jackfruit (Artocarpus heterophylis Lam.), and starfruit 

(Averrhoa carambolia) with stems into the continental United States. Malaysia also provided 

detailed information on pests associated with these commodities in that country and guaranteed 

treatment for all of its export commodities with APHIS-approved treatments. 

APHIS phytosanitary requirements include treatment of all fruit from Malaysia with high 

power pressure water spray or compressed air to remove pests, broad spectrum fungicide 

treatments, and visual inspection for plant pests. The government of Malaysia agreed to all of 

the above requirements and further agreed to an APHIS-approved generic irradiation treatment 

that would mitigate pathway risks from most insect pests. In addition, each consignment of 

jackfruit, pineapple, and starfruit would have to be accompanied by a phytosanitary certificate of 

inspection issued by Malaysia’s National Plant Protection Organization (NPPO) attesting that all 

APHIS phytosanitary requirements have been met and that the consignment was inspected and 

found free of quarantine pests. 

After conducting a pest-risk assessment, APHIS concluded that the proposed 

phytosanitary measures will effectively prevent the introduction of quarantine pests from the 

importation of pineapple, jackfruit, and starfruit from Malaysia. Thus, APHIS is allowing the 

proposed Malaysian commodities access to the continental United States’ markets subject to 

certain phytosanitary requirements. 

APHIS’ final rule satisfies our commitment under the International Plant Protection 

Convention (IPPC) to allow the importation of foreign agricultural products that we have 
2

determined are without significant risk of introducing exotic plant pests or noxious weeds into

the United States. 

The fruits of pineapple, jackfruit and starfruit are tropical or semitropical fruits and, as 

such, they are not grown in the continental United States except in greenhouses. Virtually the 

entire U.S. pineapple crop is grown in Hawaii. In 2006, the last year of reported production data 

for pineapples by the U.S. Census in Hawaii, it was reported that 30 farms, using a total of 

13,900 acres, produced 188,000 tons of pineapples with an estimated value of $75.5 million 

(table 1). In the last fifteen years, several pineapple companies in Hawaii closed down due to 

rising production costs and steep competition from Hawaii-based corporations with production 

operations in low-cost foreign pineapple producing countries. Several small, independent 

Hawaiian pineapple growers remain on the islands of Maui and Hawaii. However, their sales are 

limited to the local fresh fruit markets. The declining pineapple production in Hawaii is 

augmented by U.S. pineapple imports from countries, such as Thailand, the Philippines, Mexico, 

and from Central America. 

Table 1 Pineapples: Number of farms, acreage, production, disposition, value, State of Hawaii, 2002-2006

Year Farms

1

Acreage 

used for 

crop

Production 

in tons

(fresh weight)

Disposition

Value of production 

(fresh weight)

Processed 

in tons 

(fresh weight)

Fresh market

(in tons)

2002 25 19,100 320,000 203,000 117,000 $100,616,000

2003 25 16,000 300,000 170,000 130,000 $101,470,000

2004 30 13,000 220,000 116,000 104,000 $83,104,000

2005 30 14,000 212,000 106,000 106,000 $79,288,000

2006 30 13,900 188,000 89,000 99,000 $75,542,000

Source: NASS, Dept. of Ag State of Hawaii, Ag Development Division, Pineapples: Annual Summary, Several Issues.

Note: 2006 was the last year pineapple producers disclosed any statistics to the public. 

With respect to the U.S. production of starfruit and/or jackfruit, there are two years of 

reported production data for starfruit and none for jackfruit (table 2). The production of these 

 

1

Includes large and small pineapple growers statewide.
3

commodities is reported together with other minor fruits as one group, which is called “other 

minor tropical specialty fruits.” 2 

Table 2 Starfruit: Number of farms, acreage, production, price, value, State of Hawaii, 2002-2003

Year Farms Acreage Number of trees Utilized Production Farm Price Value of Sales Total Bearing

2002 50 25 2,100 1,800 63,000 $1.51 / lb. $ 95,000

2003 50 30 2,700 800 24,000 $1.58/ lb. $ 38,000

Source: NASS, Dept. of Ag State of Hawaii, Ag Development Division, Tropical Specialty Fruits: Annual Summary, 2010.

According to Hawaii’s National Agricultural Statistics, between 1991 and 2008, the size of 

planted acreage devoted to “minor tropical specialty fruits” as a whole has increased from 200 

acres to 1,480 acres. In 2008, Hawaiian growers of “minor tropical specialty fruits” produced 

and sold an estimated 2.1 million pounds of fresh fruit with their value of sales estimated at $4 

million. Trade statistics are not available for either starfruit or jackfruit, specifically. They are 

included in “other not specified” tropical fruits. The government of Malaysia proposed to export 

into the continental United States an annual volume of 2.5 thousand metric tons of pineapples 

which is equivalent to 0.36 percent of the last ten-year average volume of U.S. imported fresh 

pineapples.

Table 3. U.S. Trade of fresh pineapples (HS-6:0804390) average (2003-2012)*

Average (2003-2012) Value 

of U.S. trade of pineapples

Average (2003-2012) Volume 

of U.S. trade of pineapples

(in metric tons)

Proposed Malaysian Exports of 

pineapples into 

the U.S. Continental market

(in metric tons)

U.S. Imports $380,825 689,000 2,500

U.S. Exports $12,423 12,000

Net Imports $368,402 677,000

0.36 percent of U.S. fresh 

pineapple imports

Source: World Trade Atlas, 2013. *Note: See Appendix for details.

 

2 Tropical Specialty Fruits of the State of Hawaii include: abiu, atemoya, caimito, cherimoya, durian, 

langsat, longan, loquat, lychee, mango, mangosteen, persimmon, rambutan, sapodilla, soursop, starfruit, white 

sapote, breadfruit, canistel, jaboticaba, jackfruit, poha, rollina, and others.
4

Malaysia has also proposed to export to the continental U.S. 1,500 metric tons of jackfruit and 

3,000 metric tons of starfruit, for which there are not trade data available for comparison of 

imported volumes into the United States. 

Table 4. U.S. imports of fresh pineapples average (2008-2010) and proposed annual Malaysian 

exports into the continental United States of pineapples, jackfruit, and starfruit 

Average (2003-2012) 

U.S. Imports (metric tons)

Proposed annual Malaysian exports into the 

Continental U.S. (metric tons)

Fresh pineapples

with stems 689,000 

2,500 

Fresh jackfruit with 

stems

NA 1,500 

Fresh star fruit with 

stems

NA 3,000 

Source: World Trade Atlas, 2013, and the Government of Malaysia.

The United States is a net importer of fresh pineapples, the majority of which (i.e., 98

percent) are imported from Mexico and Central American countries. Costa Rica alone accounts 

for 84 percent of U.S. imports of pineapples. Table 3 shows the average value and volume of 

U.S. fresh pineapple imports and exports between 2003 and 2012. All U.S. pineapple exports

originated from the State of Hawaii.

Potential Impact on Small Entities

This analysis provides the basis, as required by the Regulatory Flexibility Act, for 

certification by the APHIS Administrator that this final rule, if promulgated, will not have a 

significant economic impact on a substantial number of small entities. Entities most likely to be 

directly affected by the final rule are importers and wholesale merchants of fresh fruits and 

vegetables (NAICS 424480). The Small Business Administration (SBA) has established 

guidelines for determining which establishments are to be considered small. Import/export 

merchants, agents, and brokers are identified within the broader wholesaling trade sector. A firm 
5

primarily engaged in wholesaling fresh fruits and vegetables is considered small if it employs not 

more than 100 persons.

3

 

Table 5. Fresh Fruits & Vegetable Wholesale Merchants (NAICS 424480) that may be affected by the rule, 2007

Number of 

Establishments

Number of 

Establishments that 

operated the entire year

Number of Establishments with 

fewer than 100 employees that 

operated the entire year

Small-entity Establishments as a 

percentage of those that operated 

the entire year

5,074 4,437 4,207 94.8%

Source: 2007 Economic Census. Sector 42: Wholesale Trade: Subject Series- Establishment & Firm Size: Summary 

Statistics by Employment size of establishments for the United States.

In 2007, nearly 95 percent (4,207 of 4,437) of fruit and vegetable wholesale 

establishments that operated the entire year were small by the SBA standard. There are not 

official data available on the number of wholesale merchants by specific fresh fruit and/ or 

vegetable. Thus, we do not know how many establishments are importing fresh pineapples. 

With respect to fresh starfruits and jackfruits there have not been any recorded data on 

commercial shipments by the U.S. Department of Commerce. The above numbers in table 4 

include the wholesale importers of all fresh fruits and vegetables into the U.S. Assuming that the 

percentage of small entities importing fresh pineapples, jackfruit, and starfruit into the U.S. is 

approximately the same percentage as those importing all fresh fruits and vegetables, then nearly 

all of the entities that may be affected by this final rule are small. They would be affected 

positively, even though none of the effects of the final amendments would be economically

significant due to the small volume of the proposed imports from Malaysia. Under these 

circumstances, the Administrator of the Animal and Plant Health Inspection Service has 

determined that this action, if promulgated, will not have a significant economic impact on a 

substantial number of small entities.

 

3 NAICS Code Report, https://epic.od.nih.gov/naics/Naicscodelist.asp (Subsector 424 – Merchant Wholesalers, 

Nondurable Goods; pp. 15:16 of 39-)
6

Appendix

Table 6. Pineapples: Number of farms, acreage, production, disposition, value, State of Hawaii, 2002-2006

Year Farms4 Acreage 

used for crop

Production (fresh 

weight)

in 1,000 tons

Disposition

Value of production 

(fresh weight)

in 1,000 dollars

Processed 

(fresh weight) 

in 1,000 tons 

Fresh market

in 1,000 tons

2002 25 19,100 320 203 117 $100,616

2003 25 16,000 300 170 130 $101,470

2004 30 13,000 220 116 104 $83,104

2005 30 14,000 212 106 106 $79,288

2006 30 13,900 188 89 99 $75,542

Source: NASS, Dept. of Ag State of Hawaii, Ag Development Division, Pineapples: Annual Summary, Several 

Issues. Note: 2006 was the last year pineapple producers disclosed any statistics to the public. 

Table 7. Value of U.S. trade of fresh pineapples (HS-6:080430) in 1,000 dollars

2003 2004 2005 2006 2007 2008 2009 2010 2011 2012

U.S.

Imports 225,670 231,120 264,085 440,215 230,318 458,344 466,567 504,447 474,364 513,123

U.S.

Exports 9,878 14,705 16,053 16,544 10,181 13,475 11,992 10,486 10,095 10,821

U.S. Net 

Imports 215,792 216,415 248,032 423,671 220,137 444,869 454,575 493,961 464,269 502,302

Source: World Trade Atlas, 2011

Table 8. Volume of U.S. trade of fresh pineapples (HS-6:080430) in 1,000 metric tons

2003 2004 2005 2006 2007 2008 2009 2010 2011 2012

U.S.

Imports 477 511 578 634 697 714 720 816 818 925

U.S.

Exports 12 16 15 16 9 12 11 8 8 9

Net 

Imports 465 495 563 618 688 702 709 808 810 916

Table 9. U.S. Trade of fresh pineapple (historically) and proposed increased volume by adding Malaysia

(2003-2012) Average Value 

of U.S. trade of pineapples

(in 1,000 dollars)

(2003-2012) Average Volume 

of U.S. trade of pineapples

(in 1,000 metric tons)

Proposed Malaysian Exports of 

pineapples into 

the U.S. Continental market

(in 1,000 metric tons)

U.S. Imports $380,825 689 2.5 

U.S. Exports $12,423 12

Net Imports $368,402

 

 677

(0.36 percent of U.S. fresh 

pineapple imports)

 

4

Includes large and small pineapple growers statewide.