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Farm and Food Support Under USDA’s Section 32 Program

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Farm and Food Support Under USDA's Section 32 Program

November 18, 2014October 17, 2016 (RL34081)
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Summary

"Section 32" is a permanent appropriation that since 1935 has set aside the equivalent of 30% of annual customs receipts to support the farm sector through the purchase of surplus commodities and a variety of other activities. The appropriation has totaled nearly $10 billion annually in recent years. Today, most of the appropriation (about $8.4 billion) is transferred to the U.S. Department of Agriculture's (USDA's) child nutrition account, with a separate amount (about $144 million) transferred to the Department of Commerce for fisheries activities. The Secretary of Agriculture, acting through USDA's Agricultural Marketing Service (AMS), has had broad discretion in how to spend the remaining non-transferred (unobligated and carryover) money.

The program's name stems from its authorization: Section 32 of the act of August 24, 1935 (P.L.74-320, as amended; 7 U.S.C. 612c). Funds are to be used to (1) encourage the export of farm products through producer payments or other means; (2) encourage the domestic consumption of farm products by diverting surpluses from normal channels or increasing their use by low-income groups; and (3) re-establish farmers' purchasing power. In recent years, USDA has pursued primarily the second and third objectives.

The Secretary historically has chosen to use much of the non-transferred money to purchase agricultural commodities like meats, poultry, fruits, vegetables, and fish, which are not typically covered by other mandatory farm support programs. The premise for commodity purchases is that removing products from normal marketing channels helps to limit supply and thereby increase prices and farm income. Purchased commodities are diverted to the National School Lunch Program and other domestic food assistance programs. In FY2015, $465 million was designated for planned AMS commodity purchases to fulfill the commodity assistance entitlement set by the National School Lunch Act. Another $306 million was used for "emergency removals" of surplus commodities throughout the fiscal year (primarily fruits, vegetables, and meat products). The surplus commodities are distributed as "bonuses" to domestic food assistance programs.

Over time, Congress has reduced USDA's discretion to use Section 32 authority via authorizing legislation and through appropriations. Most significantly, the 2008 farm bill (P.L. 110-246) permanently capped the amount USDA is permitted to spend after transfers for use in the child nutrition programs and to the Department of Commerce for fisheries activities. It also required minimum levels of fruit, vegetable, and nut purchases to support domestic nutrition programs and required USDA to use Section 32 to fund the Fresh Fruit and Vegetable Program, which provides snacks to participating elementary schools.

Section 32 is also used less for direct farm disaster assistance than in the past. This policy shift has occurred by the authorization and funding of "permanent" disaster programs in the 2008 and 2014 farm bills, enhancements to the federal crop insurance program, and limitations by appropriators on using Section 32 for disaster payments.

Farm and Food Support Under USDA's Section 32 Program
Congress created an appropriation in 1935 to assist

In 1935, Congress created an appropriation to assist Depression-era producers of agricultural commodities that were not supported by other mandatory farm support programs. The so-called "Section 32" account is funded by a permanent appropriation of 30% of the previous calendar year's customs receipts from duties on both agricultural and non-agricultural products, less certain mandatory transfers. In recent years, the total appropriation has been around $9 billion, with about $8 billion transferred, primarily to, nearly $10 billion in recent years. From that appropriation, the largest transfer, over $8 billion, is for the child nutrition programs that are administered by the U.S. Department of Agriculture's (USDA's) Food and Nutrition Service. The differenceremainder funds a variety of activities that support both farmers and domestic food assistance programs. Congressional appropriators also typically rescind a portion for budgetary savings.

The origin of the name is The program's name stems from its authorization: Section 32 of the act of August 24, 1935 (P.L.74-320, as amended; 7 U.S.C. 612c). This law specifies that the funds are to be used for (1) encouraging theThe law specifies three "clauses" for the use of funds:1. Encourage export of farm products through producer payments or other means; (2) encouraging 2. Encourage the domestic consumption of farm products by diverting surpluses from normal channels or increasing their use by low-income groups; and (3) reestablishing farmers' purchasing power.

This report first

  • 3. Re-establish farmers' purchasing power by making payments to farmers.
  • This report describes how the Section 32 account operates by tracing funds through the account. Second, it discusses several of the ways the account is used, including historical policies.

    How the Section 32 Account Operates Figure 1 is a snapshot of the flow of funds through Section 32 for FY2015, the most recent year with final data. The permanent appropriation in FY2015 was $9.7 billion, equal to 30% of prior calendar-year customs receipts from duties on both agricultural and non-agricultural products.1 This figure was reduced by:$8.4describes how the Section 32 account operates by tracing funds flowing into and out of the account. Second, a more detailed discussion is provided for each type of use, including historical policies.

    How the Section 32 Account Operates

    An accounting of one fiscal year—FY2013, the most recent year with finalized "actual" data—provides a snapshot of how the account operates, and specifically how money is collected and spent (Figure 1). The program's permanent appropriation for FY2013 was $8.990 billion, representing 30% of prior calendar-year customs receipts.1

    This figure was reduced by:

    • $7.697 billion, transferred to the Food and Nutrition Service (FNS) child nutrition program cash account, to help pay for account to pay for nearly 40% federal child nutrition programs that were appropriated a total $21.3 billion in FY2013.2 (The $12.9 billion difference was provided through the annual Agriculture appropriation.)
    • $144 million, transferred to the Commerce Department for fisheries activities. This amount equals 30% of customs receipts from fish product imports.
    • The remaining $1.216 billion is the initial amount that was available to Section 32 for the purposes of a farm bill limitation that assures a certain amount of transfers to the child nutrition programs (7 U.S.C. §612c-6). After these transfers, the Section 32 balance was further reduced by:

      $40federal child nutrition programs appropriated at $19.895 billion in FY2013.2 (The difference, $12.198 billion, was provided directly to the child nutrition programs through the annual, i.e., FY2013, USDA appropriation.)
    • $41 million, transferred to the FNS for the Fresh Fruit and Vegetable Program, plus another $133119 million from previous-year funds.3
    • $131 million (the equivalent of 30% of customs revenue from fish product imports), transferred to the Commerce Department for fisheries activities.
    • $110 million, a rescission mandated by Congress for budgetary savings.
    • $40 million, a sequestered amount mandated by Congress for budgetary savings.

    Figure 1. Uses of Section 32 Funding in FY2013

    Source: CRS, using FY2013 data from USDA, Agricultural Market Service, Budget Explanatory Notes for Committee on Appropriations, FY2015, http://www.obpa.usda.gov/21ams2015notes.pdf.

    This left $838 million, to which was added $219 million in unobligated FY2012 money that was carried into FY2013. A further upward adjustment was made to account for recoveries of $4 million and an additional $20 million that was committed earlier but not spent (called "offsetting collections"), bringing the amount available for obligation to $1.081121 million, a rescission mandated in the Agriculture appropriations act that reduces money available in the program and achieves budgetary savings.

  • $82 million, automatic sequestration pursuant to the Budget Control Act of 2011 that reduces money available in the program and achieves budgetary savings.
  • Figure 1. Uses of Section 32 Funding in FY2015 Source: CRS, using FY2015 data from USDA, FY2017 Budget Explanatory Notes for Committee on Appropriations, Agricultural Market Service, pp. 70-71, http://www.obpa.usda.gov/21ams2017notes.pdf. Additions included $187 million in unobligated funds that were carried into FY2015, recoveries of $0.8 million, and an additional $10 million that was committed earlier but not spent (called "offsetting collections"). The final amount available for obligation was $1.052 billion. From this:

    • $465 million was designated for planned AMS commodity purchases to fulfill the commodity assistance entitlement set by the National School Lunch Act (23.2575 cents per meal in the 20142016 school year beginning July 1, 20132015). $306).
    • $53 million was used to purchase specialty crop commodities for child nutrition programs as mandated by the 2008 farm bill (and reauthorized by the 2014 farm bill).
    • $200 million was used for contingency fund "emergency removals" of surplus commodities (primarily turkey, fruits and vegetables, and chicken productscranberries, tart cherries, chicken products, raisins, and canned salmon), and provided as a "bonus" to schools (over and above their "entitled" amounts) and to other designated domestic food assistance programs.
    • $0.1 million was used for the removal of defective commodities.
    • $4 million went for disaster relief foods.
    • $4554 million was used for AMS administrative expenses for direct food purchasing ($27.635 million) and oversight of federal marketing orders ($17.9 million).

    Subtracting the above spending (equal to $767 million) left AMS with a "carryout," or unobligated balance, of $314 million at the end of the year19 million).This spending subtotal of $829 million left Section 32 with a $223 million unobligated balance at the end of FY2015. This amount was less than the $500 million that the Section 32 lawstatute permits to be carried into the subsequent fiscal year (7 U.S.C. §612c).

    Uses of Section 32 Funds

    Overview The National School Lunch Program and other domestic food assistance programs are the primary beneficiaries of Section 32 funds.4 The programs receive assistance from Section 32 in two ways.

    First, much of the Section 32 permanent appropriation simply is transferred into USDA's Food and Nutrition Service (FNS) child nutrition account (approximately $7.78.4 billion in FY2013FY2015) to help meet the entitlement spending requirements of the National School Lunch Act (42 U.S.C. 1715 et seq.) and the Child Nutrition Act of 1966 (42 U.S.C. 1771 et seq.). This transfer is supplemented by a separate mandatory appropriation provided through the annual USDA appropriation law. The commingled funds are then used to provide cash and commodity subsidies to schools and other eligible program sponsors for meals served to children. The yearly determinations of how much to directly appropriate and how much to transfer from Section 32 generally have been made by appropriators based on Administration recommendations, but beginning in 2009 the amount transferred has been affected by provisions set out in the 2008 farm bill (P.L. 110-246) that permanently capped funds available for other spending after mandatory transfersAgriculture appropriations act.

    Second, a smaller—but still significantimportant—amount of Section 32 moneyfunding is used to purchase commodities directly and then provide them to schools and to other domestic food assistance programs. These purchases are intended to fulfill two requirements (under otherunder federal laws)law: (1)  provide commodities to the National School Lunch Program and other domestic food assistance programs; and (2) support farm prices (by buying and diverting additional "bonus" commodities to these food programs). In addition, the Secretary has chosen to provide food commodities to victims of natural disasters, among other activities.

    Historically, USDA has had considerable discretionary authority to spend Section 32 funds to help the farm sector via commodity purchases, direct payments, and other activities. Over time, though, Congress has reduced USDA's discretionary authority, in authorizing legislationthe extent of this discretionary authority through new authorizing provisions and through appropriations. Most significantly, riders: (1) the 2008 farm bill capped the amount USDA is permitted to spend after transfers for use in the child nutrition programs and to Commerce for fisheries activities.5 It also required,5 (2) the farm bill set minimum levels of fruit, vegetable, and nut purchases from Section 32 to support domestic nutrition programs and required USDA to use Section 32 to fundvia the Fresh Fruit and Vegetable Program for participating elementary schools. Finally,, and (3) congressional appropriators have prohibited the use of Section 32 for emergency disaster payments to farmers in each annual appropriation act since FY2012.

    Commodity Purchases

    Federal commodity purchases began shortly after passage of the 1935 law and continue today. Early in the program, USDA began donating its Section 32 purchases to low-income families and schools, on the premise that the donations would supplement, not displace, normal food purchases by these recipients.

    In general, Section 32 pays for direct federal purchases of commodities such as meats, poultry, fruits, vegetables, and seafood that are not covered by mandatory farm programs through USDA's Commodity Credit Corporation (CCC).6 Unlike CCC support, which is normally limited to price-supported commodities (such as milk, grains and oilseeds, cotton, sugar), Section 32 is not constrained in the types of commodities that may be assisted, the levels of support, or how they may be supported (except within the three broad purposes described in statute). Such decisions are left to the Secretary of Agriculture, acting through USDA's Agricultural Marketing Service (AMS). However, in an effort to boost specialty crop purchases and limit USDA's discretion, the 2008 farm bill (P.L. 110-246) requires annual specialty crop purchases of at least $406 million under Section 32 (including $200 million required by the 2002 farm bill). For FY2013, specialty crops purchases under Section 32 were $417 million.

    Section 32 commodity purchases are categorized as either "entitlement" or "contingency" (also known as "bonus commodities") and are made for FNS through USDA's Agricultural Marketing Service (AMS) using "post-transfer" funds.

    Entitlement Purchases. In planning the mandated, or entitlement, commodity purchases, USDA agencies consult with commodity organizations and devise, by early spring, a tentative purchase plan for the next school year (purchases may begin in May). The plan is based on prior year purchases, likely school needs, expectations of available funds, and any anticipated surplus or other market conditions in the coming year, among other things. AMS issues the bid specifications for purchasing the products, generally in processed form, for delivery to state drop-off points. USDA's Farm Service Agency (FSA) administers the purchase contracts and pays the vendors. For FY2013FY2015 under Section 32, AMS purchased $518465 million in agricultural commodities (including farm bill specialty crop purchases), primarily to fulfill a mandate in child nutrition law. Sections 6 and 14 of the Richard B. Russell National School Lunch Act (42 U.S.C. 1755 and 42 U.S.C. 1762a) "entitle" schools and other child nutrition program sponsors to commodities worth specific dollar amounts.

    Contingency Fund Purchases of "Bonus Commodities."." Over the course of the year, USDA taps the contingency reserve for so-called emergency surplus removals, which are then distributed as "bonuses" to domestic food assistance programs. For example, USDA announced on September 2, 2014, plans to purchase Concord grape juice for surplus removal.7 The premise is that removing products from normal marketing channels helps to limit supply and thereby increase prices. USDA may learn about these needs through its own commodity experts or be informed of surpluses or other economic problems by farm and industry organizations. Besides schools and child care centers, recipients include soup kitchens, food banks, and others serving the needy. The annual total of contingency purchases—and thus the foods provided to these outlets—has varied from a low of $54 million in FY2008 to a high of $320 million in FY2009 (Table 1). In FY2013FY2015, bonus purchases, including turkey and chickenfruits, vegetables, and meat products, totaled $200306 million (Table 2).

    Table 1. Total Annual Contingency Purchases, FY1996-FY2013

    FY2015

    ($ millions)

    1996

    $56.2

    2003
    2002

    222
    $206.9.1

    2010
    2008

    300
    $53.6.9

    1997

    $100.9

    2004
    2003

    226
    $222.1.5

    2011
    2009

    60
    $319.5.4

    1998

    $194.8

    2005
    2004

    $226149.5

    2012
    2010

    171
    $300.9.7

    1999

    $144.5

    2006
    2005

    81
    $149.5.0

    2013
    2011

    200
    $60.4.0

    2000

    $200.2

    2007
    2006

    56
    $81.9

    2014
    2012

    268
    $171.7.4

    2001

    $200.2

    2008

    2007
    53.6

    2015

    306.3

    2002

    $56206.9

    2009
    2013

    $200.0

    Source: USDA, Agricultural Marketing Service319.5  

     

    Source: USDA, Budget Explanatory Notes for Committee on Appropriations, Agricultural Marketing Service, various issues, http://www.obpa.usda.gov/explan_notes.html.

    Table 2. Contingency Purchases, FY2013FY2015, by Commodity

    ($ millions)

    Commodity

    Amount

     

    Commodity

    Amount

    Turkey

    Cranberries

    $65.0

    98.6
     

    Cranberries

    Apple products

    $5.0

    18.1

    Chicken products

    Tart cherries

    $50.0

    39.3
     

    Lamb products

    Grapefruit juice

    $510.0

    Potatoes

    Chicken products

    $25.0

    35.8
     

    GrapefruitGrape juice

    $3.8

    9.6

    Blueberries, wild

    Raisins

    $15.7

    33.8
     

    Tomatoes

    Lamb

    $37.6

    Blueberries, cultivated

    Canned salmon

    $1530.0

     

    Strawberries

    Frozen carrots

    $2.0

    3.5

    Catfish products

    Orange juice

    $9.9

    20.0
     

    Total

    $200

    306.3

    Source: USDA, Agricultural Marketing ServiceFY2017 Budget Explanatory Notes for Committee on Appropriations, Agricultural Marketing Service, p. 76, http://www.obpa.usda.gov/21ams2017notes.pdf.

    Farm Disaster Payments (Currently Prohibited)

    Historically, USDA also has had broad discretionary authority to spend Section 32 money on direct farm assistance. This type of assistance includes payments to producers, sometimes to divert production from commercial markets, and usually to counter low prices. Such payments may be in exchange for destruction of a crop, or for diversion to livestock feed and/or to use as commodities for domestic feeding programs. Diversion payments were last made in FY2001 for potatoes.

    Other direct payments also have been made to agricultural producers for either economic or disaster-related reasons; usually, these payments are transferred to USDA's Farm Service Agency (FSA) for disbursement. In FY1999, for example, Section 32 funded a total of $178.3 million in direct payments to smaller-sized hog producers, as part of a broader USDA effort to assist the industry during a time of historically low prices. Similar assistance continued in the 2000s as the Administration used Section 32 to pay for special disaster initiatives, including livestock drought losses in 2001-2003 and fruit trees and other specialty crop losses in 2005 caused by hurricanes.

    Some producer groups and domestic food program interests had contended at the time that diverting money to these payments threatened the availability of funds needed to make bonus purchases throughout the year for fruit, vegetable, poultry, pork, and other commodity groups suffering surpluses and/or low prices. These ad hoc disaster programs led to calls for and the eventual passage of disaster programs with dedicated funding. The 2008 farm bill authorized and funded agricultural disaster programs (for both crops and livestock) for four years. The 2014 farm bill permanently funded livestock and tree fruit disaster programs.

    The development of permanent farm disaster programs and enhancements to the federal crop insurance program have reduced the pressure for funding ad hoc disaster programs through Section 32. In fact, USDA is currently prohibited from distributing emergency payments to farmers under "Section 32" authority (as well as with Commodity Credit Corporation (CCC) funds). In annual appropriations acts since FY2012 (most recently, Section 719 of FY2014 Agriculture appropriations, P.L. 113-76), Congress has prohibited the use of appropriated funds to pay for salaries and expenses needed to operate a farm disaster program under either of these two funding sources. For more information on disasters programs, see CRS Report RS21212, Agricultural Disaster Assistance.

    Removal of Defective Commodities

    To assist domestic food assistance programs, AMS budgets several million dollars annually from Section 32 funds for the removal of defective commodities, but rarely spends the full amount. The money is intended to be available in case AMS must respond quickly to remove a commodity obtained by USDA for any domestic food program that is later found to pose a health risk. For example, $50 million was spent in FY2008 for removal of defective ground beef.

    Donation of Disaster Relief Foods

    In many years, a portion is used to provide food commodities to victims of hurricanes and natural disasters. Section 32 funds are available each fiscal year as needed under authority of the Stafford Act. In FY2013, funded activities totaled $4 million for assistance related to Hurricane Sandy, severe weather and tornadoes in Oklahoma, and drought in the Republic of the Marshall Islands. Congress itself periodically designates other uses. For example, it provided an additional $75 million for Section 32 in a 1983 jobs law (P.L. 98-8), to purchase and distribute foods to needy families in high unemployment areas.

    Administrative Expenses

    A portion of Section 32 funds are used to cover two types of AMS administrative expenses. The first is the cost of food-buying operations and coordination with FNS and FSA ($2735 million in FY2013FY2015). The second is for administration and oversight at the national level of federal marketing orders and agreements for milk, fruits, vegetables, and tree nuts under the Agricultural Marketing Agreement Act of 1937 (7 U.S.C. §601 et seq.), which totaled $1819 million in FY2013FY2015. Program activities and administration at the local level are financed through handler assessments.

    Budgetary Savings

    In recent years, USDA's enactedAgriculture appropriations acts have limited the availability of Section 32 funds and providedto provide budgetary savings. Rescissions were $110 million in FY2013 and $140 million in FY2012A rescission, or cancellation of budget authority, of $121 million was imposed in FY2015. An additional amount of $40 million was sequestered in FY2013. Any remaining Section 32 funds at the end of a fiscal year may be carried over and spent the next fiscal year—up to a prescribed maximum. Section 10602 of the 2002 farm bill increased the maximum carryover to $500 million82 million was sequestered, or cancelled, in FY2015 under the Budget Control Act of 2011.

    Author Contact Information

    [author name scrubbed], Coordinator, Specialist in Agricultural Policy ([email address scrubbed], [phone number scrubbed])

    Acknowledgments

    This report had been written by Dennis Shields, who left CRS in August 2015. Parts of this report were written originally by former CRS specialist [author name scrubbed].

    Footnotes

    1.

    Data for FY2013FY2015 are from USDA, Agricultural Market Service,FY2017 Budget Explanatory Notes for Committee on Appropriations, FY2015,Agricultural Marketing Service, p. 70, http://www.obpa.usda.gov/21ams2015notes21ams2017notes.pdf.

    2.

    USDA, Food and Nutrition Service, BudgetFY2017 Budget Explanatory Notes for Committee on Appropriations, FY2015, p. 32-p. 7, http://www.obpa.usda.gov/32fns2015notes32fns2017notes.pdf.

    3.

    The mix of current and prior-year funds is the result of a scorekeeping adjustment in anthe appropriations act that delayeddelays the availability of funds until the beginning of the fiscal year (October 1) rather than the school year (July 1) as authorized. As indicated on p. 19-64 of USDA, Agricultural Market Service, Budget Explanatory Notes for Committee on Appropriations, FY2014, the USDA appropriations act for FY2012, P.L. 112-55, General Provision Section 726, directs the transfer on October 1, 2012, of 2012 funds made available under subsection (c) of Section 14222 of P.L. 110-246 to carry out section 19(i)(1)(c) of the Richard B. Russell National School Lunch Act in the farm bill.

    4.

    For an overview of the domestic food assistance programs, seeseeCRS CRS Report R42353, Domestic Food Assistance: Summary of Programs, by [author name scrubbed] and [author name scrubbed]. For more details on the child nutrition programs (the primary beneficiary of Section 32 funds), see CRS Report R43783, School Meals Programs and Other USDA Child Nutrition Programs: A Primer, by [author name scrubbed].

    5.

    Section 14222 of P.L. 110-246The 2008 farm bill (P.L. 110-246, §14222; 7 U.S.C. §612c-6) specifies a maximum of $1.248 billion in FY2013, $1.266 billion in FY2014, $1.284 billion in FY2015, $1.303 in FY2016, and $1.322 billion in FY2017; subsequent. Subsequent amounts are adjusted for inflation.

    6.

    Purchases for FNS domestic food programs are also made under CCC authority by USDA's Farm Service Agency. These include nonperishable commodities such as grain products, peanut products, dairy products (e.g., evaporated milk), and oils. U.S. Government Accountability Office, Observations on U.S. Department of Agriculture's Food Assistance Procurement Process, GAO-13-395R, February 5, 2013, http://www.gao.gov/assets/660/652819.pdf. A separate Dairy Product Donation Program is authorized by section 1431 of the 2014 farm bill (P.L. 113-79) for the purchase (and distribution) of dairy products to dairy farmers when the milk margin (farm milk price minus feed cost) is low.

    7.

    USDA Agricultural Marketing Service, "USDA Concord Grape Juice Purchase Program Announced," purchase announcement, September 2, 2014, http://www.ams.usda.gov/AMSv1.0/getfile?dDocName=STELPRDC5108874.