Publicly Funded Agricultural Research and the Changing Structure of U. S. Agriculture

158 Pages·2002·2 MB·English

by  National Research Council (U. S.)

Publicly Funded Agricultural Research and the
Changing Structure of U.S. Agriculture
Committee to Review the Role of Publicly Funded Agricultural
Research on the Structure of U.S. Agriculture
BOARD ON AGRICULTURE AND NATURAL RESOURCES
DIVISION ON EARTH AND LIFE STUDIES
NATIONAL RESEARCH COUNCIL
NATIONAL ACADEMY PRESS
Washington, D.C.
NATIONAL ACADEMY PRESS 2101 Constitution Avenue, N.W. Washington, D.C. 20418
NOTICE: The project that is the subject of this report was approved by the
Governing Board of the National Research Council, whose members are drawn
from the councils of the National Academy of Sciences, the National Academy of
Engineering, and the Institute of Medicine. The members of the committee
responsible for the report were chosen for their special competences and with
regard for appropriate balance.
This study was supported by Contract/Grant No. 43-3AEL-7-80055 between the
National Academy of Sciences and the U.S. Department of Agriculture Economic
Research Service. Any opinions, findings, conclusions, or recommendations
expressed in this publication are those of the author(s) and do not necessarily
reflect the views of the organizations or agencies that provided support for the
project.
International Standard Book Number 0-309-07616-1
Additional copies of this report are available from National Academy Press, 2101
Constitution Avenue, N.W., Lockbox 285, Washington, D.C. 20055; (800) 624-
6242 or [phone] (in the Washington metropolitan area); Internet,
http://www.nap.edu
Suggested citation: National Research Council, 2001. Publicly Funded
Agricultural Research and the Changing Structure of U.S. Agriculture.
Committee to Review the Role of Publicly Funded Agricultural Research on the
Structure of U.S. Agriculture (Washington, DC: National Academy Press).
Cover illustration reprinted, with permission, from Good Directions, Inc.
Copyright 1996 by Good Directions, Inc.
Copyright 2002 by the National Academy of Sciences. All rights reserved.
Printed in the United States of America
The National Academy of Sciences is a private, nonprofit, self-perpetuating society of
distinguished scholars engaged in scientific and engineering research, dedicated to the
furtherance of science and technology and to their use for the general welfare. Upon the
authority of the charter granted to it by the Congress in 1863, the Academy has a mandate
that requires it to advise the federal government on scientific and technical matters. Dr.
Bruce M. Alberts is president of the National Academy of Sciences.
The National Academy of Engineering was established in 1964, under the charter of the
National Academy of Sciences, as a parallel organization of outstanding engineers. It is
autonomous in its administration and in the selection of its members, sharing with the
National Academy of Sciences the responsibility for advising the federal government.
The National Academy of Engineering also sponsors engineering programs aimed at
meeting national needs, encourages education and research, and recognizes the superior
achievements of engineers. Dr. Wm. A. Wulf is president of the National Academy of
Engineering.
The Institute of Medicine was established in 1970 by the National Academy of Sciences
to secure the services of eminent members of appropriate professions in the examination
of policy matters pertaining to the health of the public. The Institute acts under the
responsibility given to the National Academy of Sciences by its congressional charter to
be an adviser to the federal government and, upon its own initiative, to identify issues of
medical care, research, and education. Dr. Kenneth I. Shine is president of the Institute
of Medicine.
The National Research Council was organized by the National Academy of Sciences in
1916 to associate the broad community of science and technology with the Academy’s
purposes of furthering knowledge and advising the federal government. Functioning in
accordance with general policies determined by the Academy, the Council has become
the principal operating agency of both the National Academy of Sciences and the
National Academy of Engineering in providing services to the government, the public,
and the scientific and engineering communities. The Council is administered jointly by
both Academies and the Institute of Medicine. Dr. Bruce M. Alberts and Dr. Wm. A.
Wulf are chairman and vice chairman, respectively, of the National Research Council.

COMMITTEE TO REVIEW THE ROLE OF PUBLICLY FUNDED
AGRICULTURAL RESEARCH ON THE STRUCTURE OF U.S.
AGRICULTURE
ANTHONY S. EARL, Chair, Quarles & Brady LLP, Madison, Wisconsin
MICHAEL BOEHLJE, Purdue University, West Lafayette, Indiana
R. DEAN BOYD, Pig Improvement Company, Franklin, Kentucky
FREDERICK H. BUTTEL, University of Wisconsin, Madison
ARNOLD DENTON* (retired), Campbell Soup Company, Sacramento,
California
ESSEX E. FINNEY† (retired), Agricultural Research Service, United States
Department of Agriculture, Beltsville, Maryland
CORNELIA BUTLER FLORA, Iowa State University, Ames
PETER J. GOLDMARK, DJR Research, Okanogan, Washington
FREDERICK KIRSCHENMANN, Iowa State University, Ames
DAVID ZILBERMAN, University of California, Berkeley
Staff

CLARA COHEN, Study Director (since November 2000)
LEE PAULSON, Study Director (from August 1999 to November 2000)
MARY JANE LETAW, Study Director (from August 1997 to September 1999)
LUCYNA KURTYKA, Program Officer (from August 1999 to July 2000)
ANNE H. KELLY, Editor
KAREN L. IMHOF, Project Assistant
MICHAEL R. KISIELEWSKI, Project Assistant
Consultant
FRED C. WHITE, University of Georgia, Athens

* Resigned, November 4, 1999
† Resigned, December 10, 1999
v
BOARD ON AGRICULTURE AND NATURAL RESOURCES
HARLEY W. MOON, Chair, Iowa State University, Ames
CORNELIA B. FLORA, Iowa State University, Ames
ROBERT B. FRIDLEY, University of California, Davis
BARBARA GLENN, Federation of Animal Science Societies, Bethesda,
Maryland
W. R. GOMES, University of California, Oakland
LINDA GOLODNER, National Consumers League, Washington, D.C.
PERRY R. HAGENSTEIN, Institute for Forest Analysis, Planning, and Policy,
Wayland, Massachusetts
GEORGE R. HALLBERG, The Cadmus Group, Inc., Boston, Massachusetts
CALESTOUS JUMA, Harvard University, Cambridge, Massachusetts
GILBERT A. LEVEILLE, McNeil Consumer Healthcare, Denville, New Jersey
WHITNEY MACMILLAN, Cargill, Inc., Minneapolis, Minnesota (retired)
TERRY L. MEDLEY, DuPont BioSolutions Enterprise, Wilmington, Delaware
WILLIAM L. OGREN, U.S. Department of Agriculture (retired)
ALICE PELL, Cornell University, Ithaca, New York
NANCY J. RACHMAN, Novigen Sciences, Inc., Washington, D.C.
G. EDWARD SCHUH, University of Minnesota, Minneapolis
BRIAN STASKAWICZ, University of California, Berkeley
JOHN W. SUTTIE, University of Wisconsin, Madison
JAMES TUMLINSON, Agriculture Research Service, U.S. Department of
Agriculture, Gainesville, Florida
JAMES J. ZUICHES, Washington State University, Pullman
Staff
WARREN MUIR, Executive Director
CHARLOTTE KIRK BAER, Director
JULIE ANDREWS, Senior Project Assistant
vi
Preface
The food and agricultural economy is highly concentrated today. Economic
concentration characterizes food distribution and processing, agricultural inputs,
and, increasingly, primary production and commercial farming. Six million
farms produced the nation’s food during World War II. Today, 90 percent of all
farm output comes from fewer than a million farms. This trend is unlikely to be
reversed, but it nonetheless troubles U.S. society, which values the concept of
the family farm, as farm legislation consistently mentions the family farm as part
of its justification and goals.
Vertical integration and contracting increasingly characterize the U.S. food
and agricultural system. Vertically integrated farming, processing, and marketing
activities often are components of a single corporate entity. Subcontractors might
manage a crop or livestock operation while livestock and other assets are owned
and much of the decision making is controlled by the farm, which acts as
integrator.
In contrast to vertical integration and contracting, but also in response to
highly differentiated consumer demands, is the rise in some regions of a segment
of farmers engaged in production for niche markets. Niche marketers produce
specialty crops or use alternative management practices and typically are
independent, small-scale producers. They often market directly to small grocers,
specialized outlets, or urban farmers’ markets.
The changing food and agricultural system poses major challenges for the
public sector’s food and agricultural research and educational system. One major
vii
viii PREFACE
challenge is the complexity associated with meeting the research, extension, and
education needs of agricultural producers. A concern expressed by Congress and
other observers is the putative role of publicly funded agricultural research in
developing technologies that have been or will be biased toward changes in farm
size and other characteristics of the structure of agriculture.
In response to these concerns, the U.S. Department of Agriculture (USDA)
asked the National Research Council (NRC) to review the relationship between
publicly funded research and the evolving structure of agriculture.
The NRC convened a study panel of experts chosen for their knowledge of
agricultural policy issues, farm and agribusiness management and finance, rural
sociology, agricultural economics, and the land grant system. The committee had
the following charges:
(cid:1) Assess the role of public-sector research on changes in farm size and
numbers, with particular emphasis on very-large-scale operations.
(cid:1) Review relevant literature, including pertinent rural development literature,
on the role of research and the development of new technology in promoting
structural change in farming, evaluating theoretical and empirical evidence.
(cid:1) Consider whether public-sector research has influenced the size of farm
operations and, if so, by what means.
(cid:1) Provide recommendations for future research and extension policies, giving
consideration to improving access to the results of public-sector research
that leads to new farm production practices and technology.
As part of its information-gathering activities, the committee held public
workshops to elicit the perspective of producers, particularly those who are often
described as underserved by the current public research agenda, and other
experts on the structure of agriculture. The committee reviewed a wide array of
background material, including long-term trends in public and private
agricultural research, USDA budgets, literature on economic and sociologic
research, literature on adoption and diffusion, and on the relationship among
public research, farm size, and structural characteristics. The committee also
considered reports on minority and women farmers, the report of the USDA
National Commission on Small Farms, and reports by the Congressional Office
of Technology Assessment on the structure of agriculture.
This report analyzes the implications of public-sector research, technology
adoption, technology transfer, and distribution of public-sector research
investments for the structure of agriculture. The report also frames public-sector
research and development in the context of other drivers of structural change in
agriculture, including market forces, public policy, and the changing role of
knowledge and information. The study committee offers recommendations for
changes in the public sector’s research approach and priority-setting process and
for strengthening research programs devoted to analysis of structural change, its
PREFACE ix
causes, and its implications. The study committee hopes that Congress and the
Executive Branch will use these recommendations ultimately to benefit a broad
diversity of agricultural constituents.
Anthony S. Earl, Chair
Committee to Review the Role of Publicly Funded Agricultural Research on the
Structure of U.S. Agriculture