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Industrial Hemp: Opportunities and Challenges For Washington
Industrial Hemp: Opportunities and Challenges For Washington
Industrial Hemp: Opportunities and Challenges For Washington
Opportunities
and Challenges
for Washington
WP 2014-10
T. Randall Fortenbery
Thomas B. Mick Endowed Chair
School of Economic Sciences
Washington State University
This paper has been produced jointly by the Washington State University
College of Agricultural, Human, and Natural Resource Sciences and the School of Economic Sciences
Executive Summary
The recent passage of I-502 legalizing the production and consumption of recreational marijuana in
Washington has heighted interest in the production of industrial hemp. Industrial hemp differs from
marijuana in the level of delta-9 tetrahydrocannabinol (THC) present in the plant. THC is the chemical most
responsible for the psychoactive properties in marijuana. Industrial hemp has traditionally been defined as
having less than 0.3 percent THC, although in some U.S. states it is now defined as having no more than
1 percent THC.
At the federal level, industrial hemp is still classified as a Schedule I controlled substance and under the
purview of the U.S. Drug Enforcement Administration (DEA). However, the 2014 Farm Bill signed into law
spring of 2014 does provide language in support of industrial hemp research conducted by state departments
of agriculture and land grant universities.
In addition to the Farm Bill, 19 states have recently passed some form of legislation in support of a commercial
hemp industry. Nine states explicitly legalized the production of industrial hemp by private farmers, while the
others provided for various levels of research—from studies of the feasibility of commercial hemp production
to actual agronomic research involving hemp production at the research facilities.
Despite a lack of industrial hemp production in the U.S., there are active markets for hemp-based products. It
has been estimated that total U.S. sales of hemp products exceeded $581 million in 2013, with double-digit
growth in year-over-year sales occurring the last several years.
Because industrial hemp production has not been allowed in the U.S., the feed stocks necessary to satisfy
U.S. demand for hemp products are currently imported. While imports originate from several locations, most
of the product directed at the food and body care industry comes from Canada (the U.S. is Canada’s largest
hemp customer), while the fiber and finished clothing products tend to originate in China.
Research in the U.S. suggests that hemp could be a competitive crop for U.S. farmers, although the most
recent work is focused on production in the Midwest and southern states, not the Pacific Northwest. Direct
production experience in Canada supports this analysis, with much of its commercial production taking
place in traditional wheat producing regions.
Because profitability studies in the U.S. are not based on actual commercial-scale production, the results are
somewhat speculative. However, it is likely that profit potential could be improved with active research in
commercial hemp production. This includes work on cultivar selection for various production environments,
pest and weed management systems, and harvest technology and management, as well as research on the
actual market potential for hemp products—in other words, understanding the level of production that
would be sustainable, given expected consumer demand for hemp products.
Despite recent changes in state laws, industrial hemp is still classified as a Schedule I controlled substance
under federal drug policy, and as such is regulated by the U.S. Drug Enforcement Administration (DEA). This
puts federal law and laws in states allowing industrial hemp production in potential conflict. However, the
2014 Farm Bill does have language authorizing industrial hemp research at land grant universities and by state
departments of agriculture; thus it appears likely that industrial hemp production for research purposes will
not be in violation of federal regulations.
This report reviews the current production of industrial hemp globally, potential international and national
market opportunities, and the extent to which industrial hemp might be attractive for Washington producers.
It does not focus on other cannabis markets (recreational or medicinal marijuana). The term hemp here will
refer to cannabis with less than 0.3 percent THC (delta-9 tetrahydrocannabinol, the primary chemical that
leads to marijuana’s psychoactive properties). This is consistent with earlier definitions of hemp found in the
literature.
The objective is to provide background for parties interested in evaluating the potential for increased state
support for hemp research at both the university and private sector levels. Such research can help identify
opportunities and constraints associated with the development of a commercial hemp industry in Washington.
In his article on the history of hemp in the British Isles, World War II saw a short resurgence in U.S. hemp
Gibson (2006) notes that industrial hemp production production as both jute and abaca supplies were
in the United Kingdom can be documented as early interrupted. The legal restrictions were lifted, and the
as 343 BC. The production of hemp across the British USDA Commodity Credit Corporation contracted with
Isles helped England develop their naval dominance in War Hemp Industries, Inc., for production of hemp fiber
the 18th and 19th centuries. As UK demand for hemp and seed. This, in turn, led to War Hemp Industries
increased, imports were required. Most imports were investing in several midwestern hemp processing mills.
from Russia, but Italy was the supplier of the highest Following the war, restrictions on domestic hemp
quality hemp. Gibson notes that some UK legislators were production were re-imposed, and imports of jute and
concerned with the security implications of relying on abaca re-established. A small fiber industry continued
the import of raw materials so vital to national defense, in Wisconsin until 1958, but since then there has
and searched for ways to increase domestic production essentially been no U.S. hemp production (Fortenbery
in the 1800s. With the development of steam power and and Bennett 2004; R. Johnson 2012).
metal ships, however, that all changed, and the British
hemp industry essentially disappeared. Hemp vs. Marijuana
Hemp was first brought to New England in 1645 Industrial hemp and marijuana share the same species,
where it was cultivated for its fiber content (U.S. Cannabis sativa L, but represent different varieties
Department of Agriculture 2000). Production spread (Fortenbery and Bennett 2004). As such, there are
to Pennsylvania, and then south into Kentucky and genetic differences that lead to different chemical
Virginia. By 1775, Kentucky hosted a substantial characteristics, which, in turn, lead to different uses
commercial cordage industry with hemp fiber serving (Datwyler and Weiblen 2006).
as the primary input (Fortenbery and Bennett 2004).
Roulac and Hemptech (1997) have identified both A central argument against legalizing industrial
Presidents Washington and Jefferson as commercial hemp production in the U.S. has been the difficulty
farmers of hemp, and according to Kraenzel et al. in distinguishing between industrial hemp grown for
(1998) the first couple of drafts of the Declaration of fiber and seed (with low THC)1 and marijuana grown
Independence were printed on hemp-based paper. for its psychoactive properties (with high levels of
Other early uses included hemp fabric in colonial THC) (Vantreese 1998). However, with the recent
solders’ uniforms and the first U.S. flag sewn from legalization of marijuana in some states, this concern
hemp fabric. has diminished. Further, R. Johnson (2012) has argued
that because of the differences in their uses, marijuana
In addition to civilian demand, the U.S. Navy began
and industrial hemp look quite different when under
using large amounts of both cordage and sailcloth
commercial cultivation. Industrial hemp is grown for
made from hemp, and by the mind 1800s production
the stalk and seeds, and maximizing yields results in
had spread into Missouri and Illinois (Fortenbery and
tall plants with few leaves. Marijuana, on the other
Bennett 2004). Roulac and Hemptech (1997) estimate
hand, is grown for its leaves and tops, the parts of the
that by this time there were 160 hemp-based factories
plant with the largest concentrations of THC. As a
employing several thousand workers in Kentucky alone
result, cannabis grown for its psychoactive properties
(Kentucky being the largest U.S. producer of hemp at
is generally managed to control height and increase
that time).
bushiness: that is, encouraging many leaves and
After 100 years of aggressive growth, however, the branches, thus leading to more flowers and buds.
U.S. hemp industry began to shrink in the late 1800s.
Cannabis varieties also vary by planting density:
The decline was precipitated by both technological
marijuana plants are spaced to allow bushiness while
innovation and the discovery of alternative inputs for
industrial hemp plants are planted much closer together
traditionally hemp- based industries. These included the
to discourage branching and flowering.
development of the cotton gin, which greatly reduced
the labor needed to refine cotton, thus reducing the cost 1
THC stands for delta-9 tetrahydrocannabinol, the chemical most
of cotton fabric, and the development of steam- and responsible for the psychoactive properties in marijuana.
to be aggregated, reli-
able data on worldwide
150,000
production at the current
time (R. Johnson). Source:
100,000
FAO, FAOSTAT
50,000
0
1963
1965
1966
1967
1968
1969
1971
1973
1975
1976
1977
1978
1979
1981
1983
1985
1986
1987
1988
1989
1991
1993
1995
1996
1997
1998
1999
2001
2003
2005
2006
2007
2008
2009
2011
2013
1964
1970
1972
1974
1980
1982
1984
1990
1992
1994
2000
2002
2004
2010
2012
Hemp
Seed
Hemp
Fiber
and
Tow
Harvest timing and strategies also vary by variety, again occurring in the United Kingdom (UK), France,
allowing for detection of intended use. Thus, even in Romania, and Poland. According to the European
states where marijuana is not legal, industrial hemp may Industrial Hemp Association, there were as many as
be distinguishable from cannabis grown for marijuana, 50,000 acres of European crop ground being cultivated
based on visual appearance. for hemp in the mid-2000s. Much of this was in
countries like the UK, where hemp had been banned
Western Hemisphere Hemp Production prior to the mid-1990s.
While hemp production in the U.S. has essentially Hemp was re-introduced in Britain in the 1990s, largely
been banned for decades, it is actively cultivated in as a result of lobbying based on its environmental
other parts of the world (Figure 1). After dropping properties (Gibson 2006). Acreage steadily increased
significantly from the early 1960s through 1990, world in the 1990s, with most domestic production going to
production has been relatively stable, between 100 food markets. Other hemp products, such as clothing,
and 200 million tons of fiber and seed, combined, are also available to British consumers, but most
over the last couple of decades.2 However, the global textiles are made with hemp imported from China.
distribution of production has experienced shifts in
In addition to the British resurgence, there have
recent years. North America and Europe, for example,
have experienced significant growth in production been attempts to re-introduce hemp in other parts
over the last ten years. There has been a resurgence in of Northern Europe where hemp production also
hemp production from former western producers that disappeared as naval demand softened. For example,
had previously ceased production, as well as a focus there were a series of production trials in Sweden
on developing varieties and production practices that between 1999 and 2000 (Svennerstedt and Svensson
facilitate hemp production in non-traditional areas. 2006). These were the first attempts to develop
production in Sweden since the early 1960s. Similar
According to R. Johnson (2012), there are about to the U.S., Sweden experienced significant growth
30 countries in Europe, Asia, and North and South in hemp fiber production during World War II, and
America, that allow for commercial hemp production. the industry was relatively stable from 1940 to 1960.
While some countries, particularly in Asia, never However, the industry began to decline in the early
banned hemp production, many western countries 1960s due to competition from synthetic fibers, and,
did and have now relaxed those bans. There are by the mid-1960s, all industrial hemp production was
currently fourteen countries in Europe alone that host banned in response to growing recreational drug use.
a commercial hemp industry, with most production The ban was altered when Sweden entered the European
Union in 1995 (Svennerstedt and Svensson). Initially
2
This is based on data from the Food and Agriculture
Organization of the United Nations. However, the data appears
experimental cultivation under the supervision of
incomplete due to some countries not being explicitly listed. scientific institutions was allowed, and then in 2003
Thus, this likely under-states actual global production. commercial cultivation was legalized.
Industrial Hemp: Opportunities and Challenges for Washington 4
60,000
Figure 2. Acres of Farm Ground Seeded
for Hemp Cultivation in Canada. Source:
Health Canada.
50,000
40,000
30,000
20,000
10,000
0
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
Commercial cultivation has also been re-introduced in focused on producing seed, not fiber. This is confirmed in
Finland (Pahkala, Pahkala, and Syrjala 2008) and Italy Figure 3. Once hemp oil and hemp seed are accounted for
(Amaducci 2005), both of which had been producers (data was first available in 2006), Canada is a net exporter
prior to the 1960s. Several other European countries of aggregate hemp products. Of the Can$3.5 million
have also seen the redevelopment of a hemp production in exports in 2007, over Can$2.6 million was from
industry following relaxations of earlier bans. hemp seed, and another Can$700 thousand from oil.
According to Laate (2012), by 2010 the total value of
The only current industrial hemp producer in North Canadian exports of hemp seeds, fiber, oil and oil-cake
America is Canada. Several Canadian universities, had exceeded Can$10 million.
provincial governments, and small companies began
researching industrial hemp as a Canadian crop in Canada’s primary export customer is the U.S. (Figure 4),
1994 (Agriculture and Agri-Food Canada 2013). Based accounting for 59 percent of its exports in 2007.
on commercial potential coming out of the research, Another 12 percent went to the United Kingdom,
the Canadian ban on industrial hemp production 11 percent to Japan, and 12 percent to Ireland. The
imposed in 1938 was lifted in 1998. In March 1998, the remaining 6 percent is scattered across a variety of
Industrial Hemp Regulations were put into effect. These countries. Laate has confirmed that, as of 2010, the
cover the cultivation, processing, transport, sale, and U.S. remained Canada’s number one customer for
import and export of industrial hemp. The regulatory export of hemp products.
system is quite strict, and is administered by the Office
of Controlled Substances of Health Canada. They issue
U.S. Hemp Industry Potential
licenses for all levels of hemp activity (production,
trade, processing), and regulate production to ensure
that all hemp grown has a THC level of less than Market Demand
0.3 percent. They have also established a maximum
Despite no domestic production, there are several
standard of 10 parts per million (ppm) for THC residue
hemp-based industries in the U.S. These industries are
in hemp products, including grain, flour, and oil
completely supported by imports of hemp, and this
(Agriculture and Agri-Food Canada 2013).
is one factor, in addition to potential environmental
While highly regulated, the Canadian hemp industry benefits, that has motivated supporters of hemp over
has grown significantly since 1998 (Figure 2). In recent the last couple of decades to campaign for legalizing
years, Canada has become a major hemp exporter. hemp production in the U.S.
Export fiber value peaked in 2002 at over Can$274
Hansen and Geisler (2012) have estimated that the
thousand, but by 2007 (the most recent data available)
value of hemp food and body care products sold in
had fallen to just over Can$102 thousand. However,
the U.S. in 2010 was $40.5 million and represented
when all hemp (fiber and seed) is included, total export
an increase of over 10 percent from the previous year.3
value in 2007 exceeded Can$3.5 million.
They further note that the Hemp Industries Association
Beginning in 2003, however, Canada became a net 3
The report was originally written by Hansen, and then updated
importer of hemp fiber (similar to the U.K.), suggesting by Geisler. It is not clear who is responsible for which portions,
that Canadian increases in hemp production were thus they are cited here as joint authors.
800
$3,000,000
700
$2,500,000
600
Canadian
Dollars
Tonnes
$2,000,000
500
400
$1,500,000
300
$1,000,000
200
$500,000
100
$0
0
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
a
Export statistics prior to 2006 are for fiber
only; statistics for seed and oil were not
Imports
Value
(Can$)
Exports
Value
(Can$)
Imports
QuanEty
(tonnes)
Exports
QuanEty
(tonnes)
available prior to 2006.
Japan
11%
United
Kingdom
Japan
Ireland
Ireland
United
States
12%
Other
United
States
59%
(HIA) estimated the total retail value of hemp food, sales from large retailers, including Whole Foods and
body care, and food supplements to be between $151 Costco, that do not segregate hemp sales data. They
and $171 million in 2012. When adding this to other argue that SPINS under-estimates actual U.S. hemp sales
industrial uses (clothing, car parts, building materials, by a factor of three, although they provide no rationale
etc.) HIA estimated total hemp product sales of about for arriving at that estimate.
$500 million in 2012 (Hansen and Geisler 2012).
R. Johnson (2012) notes that the import value of hemp
In 2014, HIA estimated the 2013 U.S. market for hemp and hemp products used to support the sales described
food and body care products totaled $184 million, an above are difficult to accurately estimate. Some
estimated increase of 24 percent over the previous year products, like oilseeds and fiber, have only recently been
(Figure 5). They note that hemp-based non-dairy milk, distinguished from other hemp products, and even
shelled seeds, soaps, and lotions were areas with large then reporting errors are prevalent. For example, export
gains in sales. When combined with industrial products data from Canada does not always match reported U.S.
(paper, auto parts, building materials, etc.), the U.S. import data for the identical product (R. Johnson 2012).
markets accounted for at least $581 million in 2013
sales (HIA). Recognizing the issues associated with data collection,
Tables 1 and 2 nonetheless present estimates of both
HIA identifies their data source as SPINS, an information import values and import volumes for a host of raw
provider for the natural and specialty products industry. hemp products. These are primarily products imported
According to HIA, SPINS estimates actually represent a for further processing—they do not generally include
lower bound of total hemp sales because they exclude finished hemp-based products imported, such as
20.00%
15.00%
10.00%
5.00%
0.00%
2011
2012
2013
2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013
Product Description
in 1,000 Dollars
Hemp Seeds, Whether Or Not Broken 0 0 0 0 2,333 3,088 3,296 5,125 6,553 0 0
Hemp Oil And Their Fractions, Chemically 4,716 2,602 3,027 2,301 1,481 1,177 1,042 1,833 1,146 1,098 2,264
Modified
Hemp Seed Oilcake & Other Solid 0 0 0 0 0 460 1,811 2,369 2,947 4,388 6,279
Residues
True Hemp (Cannabis Sativa L.) Raw Or 383 200 228 183 155 139 113 94 181 157 78
Processed But Not Spun: Tow And Waste
Yarns Of True Hemp 1,032 860 904 961 989 531 568 296 580 497 482
True Hemp Fibers 899 1,382 1,232 1,605 1,826 2,335 894 1,180 1,364 1,362 1,057
Total 7,030 5,044 5,391 5,050 6,784 7,730 7,724 10,897 12,771 7,502 10,160
Source: U.S. International Trade Commission, based on compilations from tariff and trade data from the U.S. Department of Commerce and the U.S. International Trade Commission.
2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013
Product Description
in 1,000 Units of Quantity
Hemp Seeds, Whether Or Not kilograms 0 0 0 0 355 523 603 712 722 0 0
Broken
Hemp Oil And Their kilograms 742 328 287 281 189 154 128 215 157 208 450
Fractions, Chemically
Modified
Hemp Seed Oil Cake And kilograms 0 0 0 0 0 56 201 240 298 441 601
Other Solid Residues
True Hemp (Cannabis Sativa kilograms 441 171 181 172 151 103 83 42 89 55 72
L.) Raw Or Processed But Not
Spun: Tow And Waste
Yarns Of True Hemp kilograms 147 105 113 102 115 78 76 42 86 89 70
Woven Fabrics of True Hemp squares 544 559 478 452 470 560 263 284 270 319 224
Fibers meters
Source: Reported by the U.S. International Trade Commission based compilations from tariff and trade data from the U.S. Department of Commerce and the U.S. International Trade
Commission.
Product Description 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013
in 1,000 Units of Quantity
Hemp Seeds, Whether Or Not US$/kg — — — — 6.57 5.90 5.47 7.20 9.08 — —
Broken
Hemp Oil And Their Fractions, US$/kg 6.36 7.93 10.55 8.19 7.84 7.64 8.14 8.53 7.30 5.28 5.03
Chemically Modified
Hemp Seed Oilcake & Other US$/kg — — — — — 8.21 9.01 8.97 9.89 9.95 10.45
Solid Residues
True Hemp (Cannabis Sativa US$/kg 0.87 1.17 1.26 1.06 1.03 1.35 1.36 2.24 2.03 2.38 1.08
L.) Raw Or Processed But Not
Spun: Tow And Waste
Yarns Of True Hemp US$/kg 7.02 8.19 8.00 9.42 8.60 6.81 7.47 7.05 6.74 5.58 6.89
Woven Fabrics of True Hemp US$/kg 1.65 2.47 2.58 3.55 3.89 4.17 3.40 4.15 5.05 4.27 4.72
Fibers
Source: Reported by the U.S. International Trade Commission.
clothing. Note that the value of imports has averaged According to Smith-Heisters (2008), hemp grown for
over $10.3 million dollars in the last four years (2010– fiber5 is a low input, low environmental impact crop.
2013), but there is significant variation from year to This is based on a calculation of the complete life cycle
year. of production, which includes not only the direct impact
of hemp production itself on the environment, but
There is also variation across products. Hemp seeds and also the impacts associated with the manufacture and
oil are down significantly relative to earlier years, while transport of those inputs needed in hemp cultivation.
oil cake has had a large increase in import volume. For example, a crop that requires chemical fertilizers and
Hemp fiber imports have been quite stable over the pesticides would be “charged” for the environmental
sample period. costs associated with the manufacture, transport, and
storage of the chemical inputs in calculating the crop’s
The primary supplier of hemp fiber to the U.S. is China
total life cycle impact.
(as is the case for both Canada and the U.K.), but
other supplies are also imported from Western Europe, Because hemp grown for fiber requires fewer chemical
Romania, Hungary, and India. The largest hemp seed inputs than most other fiber crops, Smith-Heisters
and oil cake supplier is Canada, and the total value of (2008) argues that it has a lower life cycle impact than
Canadian imports has grown significantly in recent other fiber crops such as cotton, and this results in a net
years (R. Johnson 2012). As noted earlier, Canada itself environmental benefit.
is a net importer of hemp fiber, and thus not a major
source of fiber for U.S. industries. When grown for fiber, hemp is seeded at very high
densities. Mooleki et al. (2006) recommends seeding at
Table 3 shows U.S. hemp prices over the last decade. 60 lbs/acre for an eventual plant density of 30 to 35 plants
While there is variation from year to year, prices appear per square foot. Because of the planting density and rapid
more stable than they are for many other commodities. growth, hemp quickly crowds out competing weeds,
It appears that woven fabrics have incurred the largest resulting in little to no herbicide use during the growth
price increase over the last decade, while hemp oil prices phase. This potential benefit does dissipate, however,
are actually lower in the more recent years. Hemp seed when one manages for seed production because both
and seed cake appear to be the most valuable hemp input and management requirements increase. When
products by volume. grown for seed, Mooleki et al. recommend seeding rates
in the range of 20–30 lbs/acre, with an eventual plant
Potential Benefits beyond Market Demand density of 10 to 12 plants per square foot, which allows
more opportunity for weed pressure.
In addition to satisfying domestic demand for
currently produced and consumed hemp seed and Mooleki et al. also note that root rots and leaf spot can be
fiber products, some proponents have pointed to both significant problems, and they suggest avoiding hemp in
the environmental benefits of commercial production a close crop rotation with canola, mustard, sunflowers,
(these are benefits that are expected to accrue to society peas, and dry beans. Thus, the key to maintaining a
as a whole beyond the revenues earned by those relatively low life cycle impact revolves around careful
directly involved in the hemp supply chain),4 and the rotation management. They recommend that hemp
development of new potential markets.
5
Commercial hemp can be grown for fiber or for seed, or it can
4
These are commonly called positive externalities. Generally, they be grown as a dual purpose crop that yields both seed and fiber.
are defined as societal benefits that are not directly capitalized Both production costs and practices vary, depending on the final
into the price of a good or service. output being emphasized.
Mooleki et al. also noted that the way in which fertilizer Dietz cites contract prices for organic hemp seed in 2012
as being between Can$1.10 and Can$1.20 per pound,
is applied is critical. They suggest that nitrogen should
with conventional seed selling for between Can$0.70
be side-banded, mid-row-banded, or banded in a
and Can$0.80 per pound. These are higher than the
separate operation because hemp seed is sensitive to
Can$0.85 to Can$0.95 per pound organic and Can$0.45
seed-placed nitrogen. They also noted that any starter
to Can$0.60 per pound conventional that Mooleki et
phosphate (P2O5) should be kept low, 10-15 lbs/acre, and
al reported. Mooleki et al. also note that even though
any additional phosphate needed to correct deficiencies
the Canadian industry has been growing over the last
should be side-banded or mid-row-banded.
several years, markets are still not well established, and
the market for fiber is almost non-existent. Therefore,
Potential Profitability from Hemp Farming they encourage farmers to have signed marketing
contracts before engaging in hemp production.
In 2004 Fortenbery and Bennett concluded that
industrial hemp production in the U.S. would generally In calculating potential returns for hemp producers
be more profitable than traditional row crops, but less in Kentucky, Robbins et al. (2013) also note that both
profitable than other specialty crops. Their analysis was hemp fiber and oilseed prices are highly uncertain,
based on a detailed review of the literature prior to 2004 and thus they rely on a wide range of prices to measure
and several budgets developed for North America in potential profitability. They calculated potential
the late 1990s. These included budgets Thompson et al. returns to hemp production based on three price
(1998) had developed for Kentucky in 1998, Ehrensing’s scenarios. The low price scenario assumed fiber prices
budgets for the Pacific Northwest in 1998, Moes for of $50 per ton, and seed prices of $0.50 per pound.
Manitoba (1988), and Baxter and Scheifele for Ontario These prices are consistent with those reported by
(1999), as well as a couple of others. Given the lack of Mooleki et al. for hemp seed. The high price scenario
North American production, however, the budgets were assumed fiber prices were $100 per ton and seed prices
largely speculative (in other words, not based on actual of $0.90 per pound. These are more consistent with
commercial production). the prices reported by Dietz for Canadian producers.
Industrial Hemp: Opportunities and Challenges for Washington 9
Table 4. Returns on Hemp Production in Kentucky.
Reproduced from: Economic Considerations for Growing Industrial Hemp: Implications for Kentucky’s Farmers and Agricultural
Economy by Robbins, Snell, Halich, Maynard, Dillon, and Spalding (2013).
In addition, Robbins et al. considered a mid-price why Canada focuses on seed production and continues
scenario of $75 per ton for fiber and $0.70 per pound to be a net importer of hemp fiber.
for hemp seed.
When compared to a 50-50 corn/soybean rotation
Combined with the various price scenarios, Robbins in Kentucky, returns on hemp fiber production never
et al. considered four different levels of productivity. outperform corn/soybean production except in the most
These were linked to potential corn production— extreme situations. For example, it would take 8 tons
land capable of producing 100 bushels of corn per of fiber per acre at a fiber price of $125 per ton before
acre represented the lowest productive environment, fiber production outperforms corn with a $4 per bushel
with the upper extreme represented by land capable price on highly productive land. Based on correlations
of producing 175 bushels of corn per acre. Their between corn and hemp yields, Robbins et al. estimate
results for the lowest price range and highest price that farm ground expected to yield 175 bushels per
range across all productivity levels are reproduced in acre could be expected to yield 8.1 tons of fiber per
Table 4. acre. Thus, for fiber production to outperform a corn/
soybean system it would have to be planted on the best
When compared to a corn/soybean rotation in available land in an environment where corn prices are
Kentucky, the profit potential of hemp does not well below recent average prices and where hemp fiber
compare as favorably as when Fortenbery and Bennett is priced well above historical prices in North America.
conducted their analysis (which also included profits
from production in Kentucky), but hemp is generally Hemp seed production compares more favorably than
expected to be profitable for seed production at the fiber. Hemp seed on the most productive land would
lowest price levels for all but lands with the lowest exceed returns from corn/soybeans with corn prices at
productivity. $5 per bushel or less, soybean prices at $11.25 per bushel
or less, and hemp seed prices at $0.80 cents per pound
When moving to the midpoint of the prices (similar to the prices reported by Dietz). This assumes
considered, Robbins et al. estimate positive returns a corn yield of 175 bushels per acre and a hemp seed
(not including land costs) for both dual production yield of 1000 pounds per acre. Robbins et al. estimate
systems (producing for both seed and fiber) and seed- the expected hemp seed yield on ground expected to
only systems across all levels of land productivity. In generate 175 bushels of corn per acre would be 1050
every scenario, seed-only production systems appear pounds.
to have the most profit potential. This is due to two
factors: 1) Robbins et al. assume much higher rates of Based on the results of Robbins et al., it appears that the
P and K removal with fiber production systems; and greatest near-term profit opportunity for U.S. famers lies
2) higher machinery costs for fiber compared to seed with the food and cosmetic industries—markets that
production. These relative costs likely help explain utilize hemp seed and oil. But if hemp is grown as an oil
Industrial Hemp: Opportunities and Challenges for Washington 10
seed, producers can also access the specialized bird seed (i.e., hemp yields per acre compared to domestic cotton
market, and the seed can be crushed for oil and used in yields per acre) relative to competing fibers is often over-
the manufacture of bio-diesel. stated by proponents of hemp.
HIA has quoted David Bronner of Dr. Bronner’s Magic Cherret et al. (2005) conducted a life cycle comparison
Soaps as stating that the U.S. hemp food and body care of water and energy inputs required in various hemp
market is booming but somewhat constrained by a and cotton production systems, as well as the inputs
scarcity of hemp seeds in the market place. The inference required for the manufacture of polyester. They found
is that there would be additional growth in this space that polyester manufacturing required six times more
if there were a hemp production industry to support energy than U.S cotton or hemp cloth production on a
that growth. It should be noted, however, that Canada per-ton basis. Between cotton and hemp, the differences
only planted about 80,000 acres of hemp in 2013, and in energy use were from larger pesticide and irrigation
was expected to increase that to 100,000 acres in 2014. requirements for cotton, but producing hemp yarn
This is important because North American production required significantly higher energy consumption
is quite small, and if growth in production outpaces because of the relatively intense processing necessary.
the growth in demand suggested by HIA, then prices
A third growth area that has been pointed to for hemp
would likely suffer and the profit scenarios developed by
is the bio-energy sector. Ethanol can be produced from
Robbins et al. would deteriorate.
the cellulose in hemp fiber, but the cellulosic ethanol
Heisters-Smith argues that growing hemp for the industry continues to lag expectations for commercial
seed-utilizing sector would actually compromise success. Further, it is not clear whether hemp has any
environmental benefits relative to hemp grown for fiber, advantages over other cellulosic energy crops being
thus reducing the social benefit derived from hemp considered, such as switch grass. The two share many of
production. She claims, however, that growing hemp the same potential environmental benefits, but there is
for fiber not only generates the positive environmental a much longer research experience in both switch grass
benefits alluded to earlier, but also adds value to the production (at least in the U.S.) and its conversion to
other crops, including food crops, grown by potential energy.
hemp producers. She notes that hemp grown in
Biodiesel markets are more fully developed, and if hemp
rotation with other crops (like cereals) reduces weed
is grown for seed, the seed can be crushed and the oil
and insect pressure in the other crops, and in China has used as an input to the biodiesel process. In this case, it
been used as a barrier to repel insects from vegetable would be competing with canola oil and soybean oil.
crops. In Canada hemp has been shown to reduce cyst (Recall that Robbins et al. argued hemp produced for
nematodes when grown in a rotation with soybeans. If seed would be competitive with a corn/soybean rotation
these benefits were, in fact, realized in U.S. production if produced on more productive lands.) Biodiesel is also
systems then there could be advantages to hemp fiber produced from waste oils and greases in the U.S., but the
producers that go beyond the direct return on the fiber supply of these feedstocks is somewhat limited and will
crop itself. not be able to expand if the biodiesel industry continues
to grow (Fortenbery et al. 2013).
Heisters-Smith further argues that if hemp were grown
for fiber in the U.S there would be market opportunities Despite both thin and relatively undeveloped markets,
that have not yet been realized. One is in paper many proponents of industrial hemp have suggested
production. She notes that hemp has several qualities that both hemp fiber and whole hemp could, at the
that make it an attractive input in paper making. (Recall least, be a competitive crop if grown in the right regions
that the Declaration of Independence was first written and targeted to the right industries, and in many cases
on hemp paper.) These qualities include long fibers that could be a superior crop to those currently produced by
add strength to paper, a high level of cellulose which U.S. farmers. Much of this is based on speculation about
leads to a high pulp yield, and a low lignin content the potential growth in demand for hemp products,
which is desirable because lignin requires significant productive potential of hemp cultivated in the U.S., and
processing to remove. However, she also notes that, the ability of demand, thus prices, to out-pace growth
despite the environmental benefits of hemp, it is not in domestic production, were production to be allowed.
currently competitive with trees as an efficient source
of pulp. Most of the debate on the potential merits and risks
of cultivated hemp in the U.S. can only be addressed
Hemp fiber grown for the production of cloth has also by systematic research and field experience. It is clear,
been pointed to as an untapped market. However, as however, that in some cases the benefits are greatly
with some other uses, it is unclear just how large that over-stated. In testimony before the Environmental
market might be, and whether domestically produced Resources Committee of the Oregon Senate, Andy Kerr
hemp would compete well with hemp cloth and clothing (2007), Board Member of the North American Hemp
imported from China. Heisters-Smith again points to Council, noted that some supporters of industrial hemp
environmental benefits of cloth derived from hemp (he called them “hempsters”) are making public claims
as compared to U.S.-produced cotton, but also notes with no basis in reality. As an example, he quotes a letter
that the increased efficiency of hemp cloth production to the editor of Ecologist magazine:
Industrial Hemp: Opportunities and Challenges for Washington 11
Put Your Hope in Hemp which the researchers must deliver recommendations
In Derrick Jensen and Remedy’s article about on the viability of an industrial hemp industry to their
deforestation (Feb. 2004) they talk about hope, but respective legislatures.
without mentioning the viable alternative that is California passed legislation in 2013 requiring industrial
hemp. 1 acre of hemp can provide as much timber
hemp growers to register with the state (typical of states
products as 4 acres of trees, every four months.
that have legalized hemp production) and established
That same acre can provide as much fiber as four both registration and renewal fees for commercial
acres of trees, and enough cellulose to make 1,000 growers. In addition, the law calls for a five-year review
gallons of gasoline. This very same acre of hemp will of the economic impact of industrial hemp production
also provide 100lbs of seeds to make foods or other in California. However, unlike other states, California’s
oil products from. In short one acre of hemp would law does not become effective until industrial hemp
simultaneously allow farmers to profit from three production is explicitly authorized by federal law.
different markets, every four months.
While there is significant variation across states, the
—Michele Bajan, by email
last two years have seen substantial movement in the
Kerr notes that the author mistakenly triple allocates direction of legalizing industrial hemp production in
the biomass from hemp: once to timber, once to fiber, the U.S. This, combined with language in the 2014
and once to liquid fuel. She also implies that one can Farm Bill (Sec. 7606—Legitimacy of Industrial Hemp
simultaneously maximize fiber production while still Research), suggests that the movement is gaining
harvesting for seed, and implies a producer could harvest momentum. While some states have explicitly legalized
three crops annually. Neither of these are possible in hemp production, others are engaging in active
conventional production systems. While these types of research focused on developing a knowledge base and
claims are clearly unrealistic, others cannot be verified production experience that will support a commercial
or refuted accurately without research. This includes hemp industry in the future.
research focused on both production systems and uses
of hemp in industrial and food processes. Research Opportunities
As noted earlier, recent work implies that industrial
Current Legal Environment
hemp production could be competitive with other crops
While initiative I-502 in Washington deals directly grown by U.S. farmers. However, this is largely based on
with the production and distribution of recreational speculation, due to the lack of a U.S. research base on
marijuana, at least 19 other states have passed legislation industrial hemp production, and most comparisons do
that explicitly addresses industrial hemp production not reflect the cropping opportunities of producers in
(Appendix I). The legislation ranges from laws in New the Pacific Northwest. There are several areas of research
Hampshire and Connecticut that simply authorize that could contribute to both a better understanding
studies of industrial hemp production feasibility, to West of commercial possibilities and improvement of profit
Virginia legislation that authorizes production of hemp potential for a PNW commercial hemp industry.
with not more than 1 percent THC (more than three
times the limit authorized for Canadian production). One important area of research is cultivar development
The West Virginia law also provides complete immunity and selection. Since there has been no recent commercial
against prosecution under the state criminal code production in the U.S., and, in fact, North American
for marijuana for the cultivation and possession of production is quite new, there has been little work on
industrial hemp. the development of cultivars for various U.S. production
environments. There has been cultivar work conducted
In addition to West Virginia, 8 other states (Colorado, in Canada, but varieties grown there may not provide
Maine, Montana, North Dakota, Oregon, South the greatest production potential in much of the U.S.,
Carolina, Tennessee, and Vermont) have passed including the Pacific Northwest.
legislation explicitly allowing farmer cultivation of
hemp. Licensing requirements vary across states, and In Canada producers must purchase certified seed
most define industrial hemp as containing not more that is authorized by the government. In Manitoba,
than 0.3 percent THC (as opposed to the 1 percent in for example, there are 13 varieties authorized for
West Virginia), but all allow for production on the part planting in 2015, and another one being evaluated
of private parties. for authorization (Seed Manitoba 2014). The approved
Manitoba varieties have been field-tested for 3 to 16
Four additional states (Illinois, Kentucky, Nebraska, years. They not only vary in expected yield and tolerance
and Utah) allow hemp production by either their State to various environmental stimuli, but also vary by
Departments of Agriculture or post-secondary education expected market use. Some are better for maximizing
institutions, or both, for the purposes of research. This fiber production, some for seed production, and some
is consistent with federal authorization provided in the have developed as a dual-crop plant (harvested for both
Agriculture Act of 2014 (also called the 2014 Farm Bill). fiber and seed). Thus, breeding programs in Canada
In most cases, state legislation provides a timeline by have not only focused on production characteristics of
Industrial Hemp: Opportunities and Challenges for Washington 12
hemp, but also the development of specific varieties for If so, how large is the potential market, and what level
different end uses. Understanding how the Canadian of production would be sustainable, given growth in
varieties perform in the Pacific Northwest is a critical consumer demand?
starting point for research, but then developing cultivars
that maximize production potential given the unique
environmental factors in the PNW will be critical to
Summary
ensuring a successful commercial hemp industry if one Recent legislation in several states legalizing the
is to be developed. production of recreational or industrial cannabis or
both has provided new momentum for those interested
Along with cultivar development, research is needed
in pursuing industrial hemp as a U.S. crop. While
on the performance of various hemp varieties in crop
acreage is quite limited, it does appear that producers of
rotations common across the PNW. This includes
hemp in Canada over the last decade have experienced
understanding both the environmental impacts
(nutrient use, water use, etc.) as well as any issues some success. This has partially been aided by research
associated with hemp interaction with other established conducted by Canadian universities and private
crops in a rotation. Again, the research can build on companies focused on production systems (variety
work already done in the Canadian hemp production selection, crop management), the expansion of existing
system, but the results need to be localized across the markets, and the development of new uses for hemp
various Washington environments and production products.
systems.
Most Canadian producers grow hemp under contract
Work also needs to be conducted to understand pest because markets are still quite thin and not well developed.
pressure, and the extent to which the benefits of hemp Further, Canada has focused mostly on seed production,
production experienced in both China and Canada and has become an importer of most hemp fiber used
relative to weed suppression and management of insect domestically. However, they have also become the largest
pests is transferable to Washington environments. supplier of hemp products into the U.S. market, and this
Further, because there has been no production in the leads U.S. supporters to argue that U.S. demand could—
U.S. over the last several decades, there are no registered and should—be satisfied by U.S. hemp producers.
chemicals or recommended application rates for U.S.
Despite significant interest in pursuing hemp
hemp production. These would need to be established if
there were to be a successful commercial hemp industry. production from both the agricultural community
and domestic users of hemp, little research is being
Fortenbery and Bennett stated in 2004 that a major conducted on either hemp production systems for the
challenge to developing commercial hemp in the U.S. U.S., or the further development of existing and new
was the lack of research on both production technologies markets for hemp. Land grant universities generally,
and harvest and handling technologies. They noted that and Washington State University specifically, are well
significant resources would be needed to develop less positioned to lead such research efforts if the political
labor-intensive harvest and handling systems in order environment supported that activity. The U.S. federal
for the industry to grow and hemp to be adopted as a Agriculture Act of 2014 (also called the 2014 Farm Bill)
commercial crop on a broad scale. Significant work has gave explicit permission for land grant institutions to
been done in Canada since Fortenbery and Bennett’s pursue research related to industrial hemp production
work, and there is now a body of research and newer without putting federal grant dollars and other
technologies to build from, but there remains a need revenues at risk, but industrial hemp continues to be
to evaluate how to apply Canadian innovations and regulated as a Class I controlled substance by DEA.
experience to PNW production.
Given the resource base in much of Washington, it is
In addition to work on the production side, it will be likely that Washington producers would compete well
important to develop an understanding of the overall with current Canadian production on a total yield basis,
market potential for domestically produced hemp in and with other potential U.S. producers. As noted by
the U.S. Is it likely, similar to Canada’s experience, that several sources, hemp production in Canada requires
hemp grown for fiber will not compete with Chinese inputs and management quite similar to that of high
hemp fiber, so production strategies should focus quality wheat or corn production, both of which are
on producing for the food and body care markets? If crops produced successfully in Washington.
this is the case, what are the losses in environmental
benefits associated with less dense production on a What little research that has been done in the U.S.
per-acre basis? R. Johnson has pointed to the potential suggests that:
loss in environmental benefits from seed versus fiber 1) industrial hemp production can, at least in some
production, but this needs to be carefully quantified for instances, compete with some existing cropping
different production environments. systems on a profitability basis;
Further, how large is the overall market potential? Is 2) hemp production can provide environmental
Bronner correct in claiming that U.S. market demand is and agronomic benefits when incorporated into
currently constrained by a lack of domestic production? some existing cropping systems;
Industrial Hemp: Opportunities and Challenges for Washington 13
3) U.S. hemp could likely compete successfully a function of technological, agronomic, and industrial
with Canadian imports in U.S. markets, and innovation. These, in turn, are influenced by the scope
4) hemp can compete with many current inputs in and pace of both public and private sector research.
industrial production, at least at current prices.
Whether demand growth will be sufficient to sustain a
There may also be opportunities to develop new niche U.S. hemp industry that goes beyond Canada’s current
markets or expand existing niche markets with increased production of only 100,000 acres is unclear, but the
access to raw hemp inputs. potential is more readily addressed as an empirical
question (involving research and field trials) than as an
What is less clear is how large the potential markets for abstract debate. While Canada’s hemp industry is still
hemp-based products are, and thus the level of production quite small, it has seen growth over the last decade. It
that would be sustainable. However, these are issues is not unreasonable to expect similar results would be
that are often settled by the market itself, and also are possible in a U.S.-based industry as well.
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