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,Y,^^P^^XPY_ZQ9L_TaP>PPO9PPO^ LYO_SP.L[LNT_dQZ]?SPT]>`[[Wd Final Report CZXXT__PPZYLY,^^P^^XPY_ZQ9L_TaP>PPO 9PPO^LYO.L[LNT_TP^ -ZL]OZY,R]TN`W_`]PLYO9L_`]LW=P^Z`]NP^ /TaT^TZYZY0L]_SLYO7TQP>_`OTP^ .ZXXT__PPZY9L_TZYLW>_L_T^_TN^ /TaT^TZYZf-PSLaTZ]LWLYO>ZNTLW>NTPYNP^ LYO0O`NL_TZY Consensus Study Report ;=0;@-74.,?4:9.:;D
NATIONAL ACADEMIES PRESS 500 Fifth Street, NW Washington, DC 20001 This activity was supported by Contract No. 140L0618C0052 between the National Academy of Sciences and the Department of the Interiorâs Bureau of Land Management. Any opinions, findings, conclusions, or recommendations expressed in this publication do not necessarily reflect the views of any organization or agency that provided support for the project. International Standard Book Number-13: 978-0-309-XXXXX-X International Standard Book Number-10: 0-309-XXXXX-X Digital Object Identifier: https://doi.org/10.17226/26618 Additional copies of this publication are available from the National Academies Press, 500 Fifth Street, NW, Keck 360, Washington, DC 20001; (800) 624-6242 or (202) 334-3313; http://www.nap.edu. Copyright 2023 by the National Academy of Sciences. All rights reserved. Printed in the United States of America Suggested citation: National Academies of Sciences, Engineering, and Medicine. 2023. An Assessment of Native Seed Needs and the Capacity for Their Supply: Final Report. Washington, DC: The National Academies Press. https://doi.org/10.17226/26618. Prepublication Copy
The National Academy of Sciences was established in 1863 by an Act of Congress, signed by President Lincoln, as a private, nongovernmental institution to advise the nation on issues related to science and technology. Members are elected by their peers for outstanding contributions to research. Dr. Marcia McNutt is president. The National Academy of Engineering was established in 1964 under the charter of the National Academy of Sciences to bring the practices of engineering to advising the nation. Members are elected by their peers for extraordinary contributions to engineering. Dr. John L. Anderson is president. The National Academy of Medicine (formerly the Institute of Medicine) was established in 1970 under the charter of the National Academy of Sciences to advise the nation on medical and health issues. Members are elected by their peers for distinguished contributions to medicine and health. Dr. Victor J. Dzau is president. The three Academies work together as the National Academies of Sciences, Engineering, and Medicine to provide independent, objective analysis and advice to the nation and conduct other activities to solve complex problems and inform public policy decisions. The National Academies also encourage education and research, recognize outstanding contributions to knowledge, and increase public understanding in matters of science, engineering, and medicine. Learn more about the National Academies of Sciences, Engineering, and Medicine at www.nationalacademies.org. Prepublication Copy
Consensus Study Reports published by the National Academies of Sciences, Engineering, and Medicine document the evidence-based consensus on the studyâs statement of task by an authoring committee of experts. Reports typically include findings, conclusions, and recommendations based on information gathered by the committee and the committeeâs deliberations. Each report has been subjected to a rigorous and independent peer-review process and it represents the position of the National Academies on the statement of task. Proceedings published by the National Academies of Sciences, Engineering, and Medicine chronicle the presentations and discussions at a workshop, symposium, or other event convened by the National Academies. The statements and opinions contained in proceedings are those of the participants and are not endorsed by other participants, the planning committee, or the National Academies. Rapid Expert Consultations published by the National Academies of Sciences, Engineering, and Medicine are authored by subject-matter experts on narrowly focused topics that can be supported by a body of evidence. The discussions contained in rapid expert consultations are considered those of the authors and do not contain policy recommendations. Rapid expert consultations are reviewed by the institution before release. For information about other products and activities of the National Academies, please visit www.nationalacademies.org/about/whatwedo. Prepublication Copy
COMMITTEE ON AN ASSESSMENT OF NATIVE SEED NEEDS AND CAPACITIES SUSAN P. HARRISON (Chair), University of California, Davis DELANE ATCITTY, Indian Nations Conservation Alliance, El Prado, NM ROB FIEGENER, Independent Consultant, Corvallis, OR RACHAEL GOODHUE, University of California, Davis KAYRI HAVENS, Chicago Botanic Garden, Glencoe, IL CAROL C. HOUSE, Independent Consultant, Lyme, CT RICHARD C. JOHNSON, Washington State University, Pullman ELIZABETH LEGER, University of Nevada, Reno VIRGINIA LESSER, Oregon State University, Corvallis JEAN OPSOMER, Westat, Rockville, MD NANCY SHAW, US Forest Service, Boise, ID (Emeritus) DOUGLAS E. SOLTIS, Florida Museum of Natural History, Gainesville SCOTT M. SWINTON, Michigan State University, East Lansing EDWARD TOTH, Mid-Atlantic Regional Seed Bank, Cortland, NY STANFORD A. YOUNG, Utah State University, Logan (Emeritus) Study Staff ROBIN SCHOEN, Director, Board on Agriculture and Natural Resources KRISZTINA MARTON, Senior Program Officer JENNA BRISCOE, Research Associate (until September 2021) SARAH KWON, Senior Program Assistant (until May 2022) PAIGE JACOBS, Program Assistant (until November 2022) SAMANTHA SISANACHANDENG, Program Assistant Prepublication Copy v
Acknowledgments This Consensus Study Report was reviewed in draft form by individuals chosen for their diverse perspectives and technical expertise. The purpose of this independent review is to provide candid and critical comments that will assist the National Academies of Sciences, Engineering, and Medicine in making each published report as sound as possible and to ensure that it meets the institutional standards for quality, objectivity, evidence, and responsiveness to the study charge. The review comments and draft manuscript remain confidential to protect the integrity of the deliberative process. We thank the following individuals for their review of this report: AMY W. ANDO, University of Illinois, Urbana-Champaign MEGHAN BROWN, Nevada Department of Agriculture BRIAN M. IRISH, US Department of Agriculture, Agricultural Research Service KRISTEN OLSON, University of Nebraska, Lincoln STEVE PARR, Upper Colorado Environmental Plant Center S. LYNNE STOKES, Southern Methodist University RUSSELL E. TRONSTAD, University of Arizona ANDREA WILLIAMS, California Native Plant Society G. DAVID TILLMAN, University of Minnesota Although the reviewers listed above provided many constructive comments and suggestions, they were not asked to endorse the conclusions or recommendations of this report, nor did they see the final draft before its release. The review of this report was overseen by PETER H. RAVEN (NAS), Missouri Botanical Garden (Emeritus) and MAY R. BERENBAUM (NAS), University of Illinois at Urbana- Champaign. They were responsible for making certain that an independent examination of this report was carried out in accordance with the standards of the National Academies and that all review comments were carefully considered. Responsibility for the final content rests entirely with the authoring committee and the National Academies. Prepublication Copy vii
Preface Since the publication of our Interim Report in late 2020, the need to strengthen the nationâs supply of native seed for ecological restoration and related purposes has only become clearer. The year 2021 came in just behind 2020 in terms of number of multi-billion-dollar climatic disasters (20 versus 22) and third in total costs (behind 2017 and 2005), with a price tag of $145 billion (www.ncei.noaa.gov/access/billions/). Major climate-related events in 2021 alone included a severe cold wave in the South, massive wildfires and continued drought in the West, flooding in California and Louisiana, 3 tornado outbreaks, 4 tropical cyclones, and 8 other severe weather events. The increasing magnitude and frequency of such climatic mega-disturbances is straining not only our economy but the recovery capacity of ecosystems, in synergy with other unceasing stresses including invasive species, energy and mineral extraction, urbanization, and land conversion. As the vulnerabilities of humans, wildlife, and critical ecosystem services to these disruptions grow, the need for ecological restoration in the 21st century will continue its trajectory toward a previously unmatched scale. In the US just as elsewhere in the world, a limited supply of native seeds and other native plant materials is a widely acknowledged barrier to fulfilling our most critical restoration needs. In our efforts to analyze the nationâs system of producing and using native plant materials for restoration and to identify the most impactful steps toward improving the supply, we were not helped by the COVID-19 pandemic. Our meetings, presentations, and information gathering were slowed significantly, and the availability of our committee members, National Academies staff, and expert informants across the nation were drastically altered by the many changes to peopleâs professional and personal lives. âNevertheless, we persisted.â We are now honored to release what we believe is a well- supported set of key recommendations for improving the native seed supply, backed by findings and conclusions reached through collecting input from native seed producers and users in the public, private, nonprofit, and academic sectors across the US. Iâd like to thank the committee members who have worked so hard to bring this report to its fruition, along with the staff from the National Academies of Sciences, Engineering, and Medicine. And together, all of us thank the expert informants whose professional dedication to the supply and use of native plant materials made this report possible. Sincerely, Susan P. Harrison, Chair Committee on an Assessment of Native Seed Needs and Capacities Prepublication Copy ix
Contents SUMMARY 1 1 INTRODUCTION 12 2 DESCRIPTION OF THE INFORMATION-GATHERING STRATEGY 21 3 NATIVE SEED NEEDS AND THE FEDERAL GOVERNMENT 27 4 STATE GOVERNMENT USES OF NATIVE SEED 41 5 TRIBAL USES OF NATIVE SEED 62 6 COOPERATIVE PARTNERSHIPS FOR NATIVE SEED DEVELOPMENT, SUPPLY AND USAGE 66 7 SEED SUPPLIERS 78 8 KNOWLEDGE GAPS AND RESEARCH NEEDS TO SUPPORT THE NATIVE SEED SUPPLY 99 9 SUMMARY CONCLUSIONS AND RECOMMENDATIONS FOR THE NATIVE SEED SUPPLY 111 APPENDIX 1: Committee Biographies 120 APPENDIX 2A: Semi-Structured Interview Guide for Federal Agencies 125 APPENDIX 2B: State Departments Survey Invitation Letter 131 APPENDIX 2C: State Government Departments Web Survey Instrument 132 APPENDIX 2D: State Government Departments Survey Frequency Distributions 140 APPENDIX 2E: Supplier Survey Invitation Letter 169 APPENDIX 2F: Supplier Web Survey Instrument 170 APPENDIX 2G: Supplier Survey Frequency Distributions 180 APPENDIX 2H: Public Information Gathering Sessions In-Person and Virtual Agendas 217 Prepublication Copy xi
Acronyms and Abbreviations AOSA Association of Official Seed Analysts AOSCA Association of Official Seed Certifying Agencies ARS Agricultural Research Service BLM Bureau of Land Management DOD Department of Defense DOI Department of the Interior DOT Department of Transportation EPA Environmental Protection Agency G0, Gx, Generation zero, Generation x IDIQ Indefinite Delivery, Indefinite Quantity NASEM National Academies of Sciences, Engineering, and Medicine NIFA National Institute of Food and Agriculture NPS National Park Service NRCS Natural Resources Conservation Service PCRP Plant Conservation and Restoration Program PLS Pure live seed PMC Plant Materials Centers REPLANT Repairing Existing Public Land by Adding Necessary Trees RFP Request for Proposal SCST Society of Commercial Seed Technologists SESRC Social and Economic Sciences Research Center Prepublication Copy xiii
Acronyms and Abbreviations SI Source-Identified Seed USDA US Department of Agriculture USFS US Forest Service USFWS US Fish and Wildlife USGS US Geological Survey xiv Prepublication Copy
Glossary Accession: A distinct, uniquely identified sample of seeds or plants. Adaptive management: A structured process of using management as an experiment, so that new information is gained that reduces uncertainty about the managed system and enables management to improve over time. Agronomically: Related to growing a crop, with a focus on managing the soil, nutrients, and the physical and biological environment to support crop production. Cultivar: A named variety of a plant species with distinct genetically-based morphological, physiological, cytological, or chemical characteristics, produced and maintained by cultivation. Ecological restoration: The process of assisting the recovery of an ecosystem that has been degraded, damaged, or destroyed. Ecoregion: A relatively large unit of land or water that is characterized by a distinctive climate, ecological features, and plant and animal communities. Ecosystem: A biological community of interacting organisms and their physical environment. Ecotype: A genetically distinct subset of a species (a population, subspecies, or race) that is adapted to local environmental conditions. Empirical seed zone: Area within which plant materials are believed to be transferrable with little risk of being poorly adapted to their new location, developed by combining species-specific information on local adaptation with environmental information. Establishment: The stage at which the seedling has exhausted the food reserves stored in the seed and must grow, develop, and persist independently. Extractory: Facility for the cleaning, testing, and short-term storage of wild-collected seed. Forbs: Vascular plants that are not woody and also not grasses or members of the grass family, sometimes colloquially called âwildflowers.â Genetically adapted: See Local Adaptation. Genetically appropriate: Native plant materials that are likely to establish, persist, and promote ecological relationships at a restoration site. Such plants would be: sufficiently genetically diverse to respond to changing environmental conditions; unlikely to cause genetic contamination of resident native species; unlikely to become invasive and displace other native Prepublication Copy xv
Glossary species; unlikely to be a source of nonnative pathogens; and likely to maintain relationships with other native species. Germplasm: Living genetic resources such as seeds or tissues that are maintained for breeding, research, and conservation efforts. Habitat: The place or environment where a plant or animal naturally or normally lives and grows. Invasive species: A species that is nonnative to the ecosystem under consideration and which is likely to cause economic or environmental harm. Local adaptation: Evolution of genetically distinct traits that make certain populations of a species better able to establish and persist in their particular local environment than other populations of the same species from other locations. Maladaptation: Having traits that are poorly suited or adapted to a particular situation or set of conditions. Native plants: Species that occur naturally in a particular region, ecosystem, or habitat, having either evolved there or dispersed there unaided by humans. Native plant communities: Recurring assemblages of native plant species associated with particular regions and environmental conditions. Nonnative species: Species that have been accidentally or deliberately introduced by humans to a continent, region, ecosystem, or habitat in which they did not previously occur. Plant materials: Any portion of a plant that can be propagated, including seeds, cuttings, and entire plants. Provenance: The geographic origin of a seed source. Provisional seed zone: Area within which plant materials are believed to be transferrable with little risk of being poorly adapted to their new location, developed using climatic and other environmental data, but not using species-specific information. Pure live seed: The living seed of the intended species that will germinate from a seed bag, which is weight of the bag minus weeds, impurities, and inviable seed. Rehabilitation: Restoring a particular function such as erosion control to a damaged or degraded area, using native or nonnative species. Restoration continuum: The variation from ecological restoration to other related activities such as rehabilitation and revegetation. xvi Prepublication Copy
Glossary Revegetation: Restoring plant cover to a damaged or degraded area, using native or nonnative species. Seed bank: A storage facility intended to preserve seeds for the future, which requires low humidity and low temperatures. Seed certification: A legally controlled system of quality control over seed multiplication and production. Seed increase: Cultivation of a plant with the goal of obtaining a larger quantity of seeds for future cultivation. Seed quality: The combination of correct genetic identity, germination fraction, and vigor in a batch of seeds. Seed viability: The capacity of a seed or batch of seeds to germinate under suitable conditions, including dormant seeds for which dormancy must be broken before viability can be measured by germination. Seed zone: A mapped area within which plant materials are believed to be transferrable with little risk of being poorly adapted to their new location. Taxon: A collection of one or more populations of organisms. Taxa are the hierarchical classifications of a species (e.g., species, sub-species). Traditional Ecological Knowledge: Also called Indigenous Knowledge or Native Science, the evolving knowledge of a specific location acquired by indigenous and local peoples, including relationships between plants, animals, the physical environment, and their uses for activities including but not limited to hunting, fishing, trapping, agriculture, and forestry. Workhorse species: Native species with the potential for broad use in restoration across a region, selected because they are abundant across a wide range of ecological settings, establish quickly, and support important ecological processes. Prepublication Copy xvii
