Policy Brief: How the USDA Germplasm Resources Information Network (GRIN) Could Harness Farm Bill Funding to Provide Sustainability, Equal Access, and Nutrition Security Locally for Communities

by: cristina ciranda and geoffry box

american university practicum, may 2023


Executive Summary

Systemic racism within the USDA has led to discrimination against black farmers and other minorities. The lack of access to genetic resources and nutritional data in the Germplasm Resources Information Network (GRIN) database is a significant issue that hinders the development of sustainable and local farming systems for BIPOC farmers.

Introduction

The Farm Bill is a five-year periodic omnibus legislation that packages 12 smaller appropriation bills called ‘Titles’ into one larger bill to address agriculture and food, and has a tremendous impact on farming livelihoods. This policy brief specifically focuses on the implementation of the GRIN in Title VII: Research, Extension, and Related Matter. GRIN is an incredible resource for not only learning about where different types of seeds come from, but it also acts as a large seed bank for the seeds the USDA has collected during the late 20th century until now. The removal of germplasms to be stored in inaccessible seedbanks by the USDA from regions both domestically and internationally has left a cultural gap for farmers and others who see those seeds as a form of heirs property that should be theirs by ancestral right as well as a form of creating local, sustainable, holistic food systems. This policy brief promotes an effort towards the removal of barriers to accessing culturally relevant seeds in an aim to ensure food sovereignty and mental, spiritual, and physical health for communities and future generations.


Current situation

The Farm Bill overall has always had a large focus on the production of industrial monocultures. It has stressed planting “fence row to fence row” and thus forcing small farmers to meander around islands of debt while drowning in subsidies that only act as temporary, rickety bridges to larger, impassable rivers leading to complete land loss (Graddy-Lovelace & Diamond, 2017). Because supply management is almost non-existent, most funding goes to large corporations or large family farms, generally those of white european descent, that command a lion's share of the land and thus are approved for funding (Schechinger & Faber, 2023). This is no different when it comes to GRIN and the importance of culturally adaptable seeds (N. Kleinman, personal communication, April 6, 2023). Issues affecting sustainability in the midst of climate change, equity for BIPOC farmers in terms of access, and nutrition insecurity abound as the 2023 Farm Bill approaches on the horizon.

An issue that has long dominated the US and global agricultural landscape is the use of annual crops on an industrial scale. This causes more and more degradation each year to farm land and the environment that could otherwise be used as carbon sinks to combat climate change and promote healthier and safer living spaces. Thousands and thousands of accessions of soybeans, maize, and other cash crops are granted annually, while not a single, or rarely an accession is provided for most perennial vegetables (Glover, 2005). Currently, GRIN is of limited use in producing perennial vegetable crops which could aid in combating the climate crisis (N. Kleinman, personal communication, April 6, 2023).

The situation has been dire for low-income and BIPOC farmers and communities for decades, who are striving to support a healthy lifestyle for their families (B. Ladeeb, personal communication, March 31, 2023). Historically, people from these communities are heavily underrepresented in Farm Bill policies, while those of white and affluent communities tend to be much better represented (Ayazi & Elsheikh, 2015)This is the same when it comes to access to GRIN. GRIN doesn’t allow for individuals to apply for seeds unless they represent an officially licensed organization or institution, and even then it requires going through leaps and bounds of political bureaucracy to eventually be granted access. This requires being fluent in bureaucratic language and understanding government policies (N. Kleinman, personal communication, April 6, 2023). This is not something that most low-income BIPOC communities have experience in. Furthermore, GRIN is unattainable for those who don’t have a college level science background because the plants are searched for in their database using scientific names. Even when a BIPOC individual has the correct training and institutional connections, many times they have been turned down with no clear rationale which alludes to a layer of systemic racism built into USDA initiatives (N. Kleinman, personal communication, April 6, 2023).

Nutrition has always been a concern when it comes to the Farm Bill. One way to approach that is through the Supplemental Nutrition Assistance Program (SNAP), but another is to upholster communities undergoing nutrition insecurity through providing access to seeds for developing sustainable, local farm systems. There is an extreme reliance on the government to provide food, but much of the food accessed through the SNAP program is unhealthy because nutritious food requires wealth which SNAP does not always afford. SNAP only adjusts for inflation at the beginning of the fiscal year, meaning during times of high, abrupt inflation, many households struggle to meet nutrition goals (Golan et al, 2008). GRIN could be a beneficial avenue for such communities to build themselves up nutritionally. Unfortunately, GRIN is not made easily accessible to communities looking for ways to create local food systems. USDA has proudly invested heavily in taxonomic resources for nearly 36,000 species of vascular plants, but does not stem much of this funding towards providing information on their nutrient values (Wiersema, 2002).


Policy Recommendations

Open Access to Genetic Resources

USDA-GRIN should adopt policies that ensure open access to genetic resources for all seed breeders, regardless of location or size. This will enable breeders to access a wider range of genetic resources and increase the diversity of their breeding programs.

  • Open access to genetic resources can lead to the development of new crop varieties that are better adapted to changing environments and can improve food security. NIFA and ARS have programs aimed at developing new crop varieties that will help farmers adapt to changing environmental conditions and improve crop yields and nutritional quality. Involving smallholder farmers and participatory breeders in these programs can also benefit the goals of NIFA and ARS by increasing the diversity of genetic resources used in breeding programs, promoting more locally adapted varieties, and empowering smallholder farmers in the breeding process.

Support participatory breeding programs

USDA should provide financial and technical support for participatory seed breeding programs, especially those that focus on locally adapted crops. Such programs have the potential to improve food security and reduce poverty in rural communities.

  • Potential benefits: Participatory breeding programs that focus on locally adapted crops have the potential to develop crop varieties that are better adapted to local conditions and have higher yields, increasing the availability of nutritious food and reducing the risk of hunger and malnutrition. Additionally, improved crop varieties can help farmers increase their incomes and improve their livelihoods by being more resilient to climate change, pests, and diseases. Successful implementation of participatory breeding programs requires adequate funding, technical expertise, and stakeholder participation.

Address the Lack of Nutritional Data in the GRIN Database, and Collaborate with Nutrition Experts

GRIN should work with nutrition experts to develop a comprehensive database on the nutritional content of crops. This database should include information on the vitamins, minerals, and other nutrients found in different crops, as well as their health benefits. In addition, incentives could be provided for farmers and other stakeholders to collect and submit data on the nutritional content of crops to the GRIN database. This could take the form of grants or other financial incentives that would encourage more people to contribute to the database.

  • Potential benefits:  Working with nutrition experts to create a comprehensive database on crop nutrition can have many benefits. First, it can address the lack of nutritional data in the GRIN database, which can help plant breeders, researchers, and farmers develop healthier crops. In addition, this policy will promote the cultivation of diverse and nutritious crops and foster collaboration among stakeholders such as farmers, researchers, and nutrition experts to improve crop diversity and quality.

To Address Discrimination

To address discrimination, the USDA should increase funding for programs that support farmers, particularly black and minority farmers. In addition, USDA should do more to inform minority farmers about the programs and services available to them through targeted marketing, community events, and other outreach efforts. Providing information in languages other than English can also help make information more accessible to minority farmers. Increasing transparency in USDA operations, including its funding allocation processes and decision-making procedures, can help ensure that minority farmers are not unfairly disadvantaged by USDA policies and practices.

  • Potential benefits: Policies that increase funding for programs that support black and minority farmers can help increase the number of black and minority farmers and improve their economic well-being. It will also help preserve the agricultural heritage of black and minority farmers and address the legacy of discrimination in agriculture.


Resources

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Ayazi, H., & Elsheikh, E. (2015). The US Farm Bill: Corporate Power and Structural Racialization in the US Food System.

Bretting, P. & USDA/ARS Office of National Programs. (n.d.). The National Plant Germplasm System: 2023 Status, Prospects, and Challenges [Slide show]. www.ars-grin.gov. https://www.ars-grin.gov/documents/cgc/briefings/2023%20CGC%20Chairs%20meeting%20presentations.pdf

Bustillo, X. (2023, February 12). Black farmers call for justice from the USDA. NPR. https://www.npr.org/2023/02/12/1151731232/black-farmers-call-for-justice-from-usda

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Crop Production. (n.d.). Nation Institute of Food and Agriculture. https://www.nifa.usda.gov/topics/crop-production

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Golan, E. H., Stewart, H., Kuchler, F., & Dong, D. (2008). Can low-income Americans afford a healthy diet? (No. 1490-2016-127727).

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Schechinger, A., & Faber, S. (2023, February 1). Updated EWG Farm Subsidy Database shows largest producers reap billions, despite climate crisis | Environmental Working Group. Environmental Working Group; Environmental Working Group. https://www.ewg.org/research/updated-ewg-farm-subsidy-database-shows-largest-producers-reap-billions-despite-climate

Smith, S. M., Nickson, T. E., & Challender, M. (2021). Germplasm exchange is critical to conservation of biodiversity and global food security. Agronomy Journal, 113(4), 2969–2979. https://doi.org/10.1002/agj2.20761

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USDA ERS - Investment in U.S. Public Agricultural Research and Development Has Fallen by a Third Over Past Two Decades, Lags Major Trade Competitors. (n.d.). https://www.ers.usda.gov/amber-waves/2022/june/investment-in-u-s-public-agricultural-research-and-development-has-fallen-by-a-third-over-past-two-decades-lags-major-trade-competitors/?cpid=email

Wiersema, J. H. (2002, August). The Role of the GRIN Database in Promoting Stabilization of Economic Plant Names. In XXVI International Horticultural Congress: IV International Symposium on Taxonomy of Cultivated Plants 634 (pp. 67-74).

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