Small-Scale Produce Growers Share Perspectives on FDA’s Produce Safety Rule Exemptions

A new qualitative study published in the Journal of Agriculture, Food Systems, and Community Development examined how exemptions from the U.S. Food and Drug Administration's (FDA's) Food Safety Modernization Act (FSMA) Produce Safety Rule (PSR) influence food safety decision-making among small-scale produce growers.
Researchers from Purdue University conducted five focus groups with 30 Indiana produce growers who qualified for PSR exemptions, using the Theory of Planned Behavior to examine the beliefs, values, and practical constraints that shape on-farm food safety practices.
Growers Express Commitment to Food Safety
Despite being exempt from many PSR requirements, participants consistently expressed a strong commitment to producing safe food. Growers said their personal values, responsibility to consumers, and close relationships with local communities motivated them to maintain food safety practices regardless of regulatory requirements.
Food Safety Challenges Identified
However, participants also identified significant barriers to implementing food safety practices. Common challenges included limited labor, time constraints, the burden of recordkeeping, insufficient access to updated guidance, difficulty obtaining on-farm technical assistance from Extension personnel, and uncertainty about regulatory expectations.
Perceived Pros and Cons of PSR Exemptions
The study also explored growers' perceptions of PSR exemptions. Participants said exemptions reduced regulatory burdens, inspection frequency, compliance costs, and time commitments, helping many small farms remain financially viable.
At the same time, growers viewed exemptions as limiting opportunities to expand into wholesale and retail markets that often require food safety certifications regardless of exemption status. Some participants also expressed concern that exempt farms may face greater liability because they are not required to comply with the same regulatory standards.
Future Outreach Needs
The researchers concluded that food safety outreach for exempt growers should emphasize practical, trust-based support rather than regulatory compliance alone. They suggested that expanding access to Extension services, providing clearer guidance, and developing centralized information resources could help small-scale producers strengthen food safety practices while addressing the unique challenges associated with PSR exemption.
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