Also, what's the connection to the high yield ones? Is it because those get counterfeited the most?
Imagine if 90% counterfeit electronics caused house fires, the harm is way beyond the purchase price. At that point customers start caring a great deal, but corruption is difficult to avoid.
Transportation infrastructure on this scale is a new thing, though famine essentially going away is a massive advantage for modern systems.
The first generation of Hybrid seeds are on average several times more productive than the second generation, yet they look the same. Further it’s much easier to gather a second generation of seeds than the first. Thus significantly worse product that’s cheaper to produce but looks identical barring genetic testing = counterfeit.
the first generation has a many sets of genes with "Highly Productive Dominant (HPD, my terms for this post) genes, Not so Productive Recessive Gene (NPR)". By inbreeding 2 lines for a while, one can end up with a strain that has both genes being one and thereby when you cross it with something else, you know the offspring will get its gene (as it really only has one). Therefore the first generation, will have many sets as what I described above and will 100% express the HPD of those pairs.
The 2nd generation though of seeds will have a randomized assortment of HPD/HPD, HPD/NPR, NPR/NPR genes. Therefore while 75% of the seeds expressed genes will be HPD on average, that's obviously less than 100% that one gets from first generation.
Further you’re likely looking at many such combinations not just a single one.
/s
Edit: (I personally know basically nothing about the law or how it’s been implemented.)
The high yield seeds are created by cross pollinating certain varieties. When the high yield seeds are planted, the new seeds should be eaten -not re-planted- since they will give poor yield.
So a counterfeiter can just buy cheaper food-seeds and resell them as expensive high-yield seeds.