Most if not all states have laws which force seedmen to register. Thing is, the usual definition of a seedman involves commerce / money trading hands for the seeds. Here in KY it is nothing but a thing. I forget the fee but it is small. Thing is, states are starting to change things so you need to be a seedman just to trade or give away seeds. In seed libraries, they want everyone who contributes to be a registered seedman. You can see how that would put people off. I mean lets say the fee is fifty bucks a year. Not a big deal if you are selling seeds, but to pay fifty bucks a year just to trade a few here and there is nuts. I guess it depends on how much you want to put into your hobby.
Scoville is right on about the move being pushed by big business. Folk are starting to enjoy we hippie dippie seed savers. I am sure that bugs Monsanto.