How policies constrain native seed supply for restoration in Brazil

Abstract

Large-scale ecological restoration programs across the world involve a voluminous demand for native seeds of diverse native plant species. In this article, we explore how institutional systems have operated and impacted native seed supply in Brazil. Native seed supply for restoration is essentially a community-based activity which faces broad barriers to operating within regulations because of requirements for excessive and costly technical documentation, scarcity of seed laboratories, and lack of instructions for native seed quality testing. Although decentralized seed networks have stimulated arrangements for local organizations to promote seed supply, policies constrain the development of local capacities and the ongoing sustainability of these organizations. These conditions have resulted in a vast network of informal collectors and producers who are largely "invisible" and unknown to the regulatory authorities. Policies have decentralized responsibilities from the state without devolving decision-making power to the multiple stakeholders engaged in policy elaboration. The policies maintain the centralized regulation of native seed supply. After examining Brazilian seed networks' experiences and conducting discussions with stakeholders and experts, we suggest adapting the current regulations to more local level contexts, encompassing the following strategies: (1) ensuring native seed origin and identity; (2) relaxation of the laboratory accreditation process for native seed quality assurance; (3) fostering seed markets for restoration; (4) research to provide technological innovation; (5) supporting local, diverse, and small seed-based businesses.

Collection and production of native seeds for ecological restoration

“…The involvement of local indigenous people with intimate knowledge of native species can be invaluable (Fig. ) while, at the same time, providing important employment opportunities and revenue, thus helping to stabilize seed markets and increasing the reliability of native seed supplies for restoration (de Urzedo et al , , ).…”

Seed Networks for Upscaling Forest Landscape Restoration: Is It Possible to Expand Native Plant Sources in Brazil?

“…Thus, the Ministry of the Environment supported the formation of 'seed networks', as a collaborative strategy between governmental environmental agencies, universities, nurseries and local communities for upscaling native seed sources. In 2001, the federal government financed the creation of seed networks in the Brazilian biomes for developing native seed technologies, capacity development, and local participation [24]. Initially, eight networks were formed to spread scientific knowledge and capacity building to develop a native seed industry.…”

“…The regulations were based on standards applied to the agricultural industry, which mainly promote genotype homogeneity and stability as consequences of economic reasoning [65]. However, these mandatory approaches neglected any specifications for the use of genetic and ecological diversity of native species as required for environmental conservation and landscape restoration [24].…”

“…The current availability of plant material sources is considered insufficient [19,20] for meeting the global demand for hundreds of thousands of tonnes of native seed for large-scale restoration goals [18]. In tropical regions, the use of highly diverse native species in FLR is severely limited by a lack of seed biology knowledge [21], the poor performance of the restoration market [22], a low level of incorporation of local knowledge [18], power centralized on governments [23][24][25] and the necessity to develop applied technologies [26,27]. Over recent decades, a wide range of seed programs has emerged in the tropics to overcome native seed scarcity [28] linked with local communities who own the biodiversity knowledge and traditionally collect and exchange plant materials [19].…”

“…Brazil has well-consolidated experience in developing community-based seed production going back to the 2000s, with a relevant demonstration of how local participation and institutions can enhance supply and design instruments for benefits sharing [37]. Although suppliers have developed innovative seed production systems on the ground, there are still various barriers to boosting seed sources, including the high level of informality and restrictive regulations, unstable restoration markets and lack of public participation in policy decision-making processes [24].…”