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The Natural Resources Conservation Service (NRCS) and the Farm Service Agency (FSA) in the U.S. Department of Agriculture (USDA) currently administer close to 20 programs and subprograms that are directly or indirectly available to assist producers and landowners who wish to practice conservation on agricultural lands. The differences and number of these programs have created general confusion about the purpose, participation, and policies of the programs. While recent consolidation efforts removed some duplication, a large number of programs remainsremain. The programs discussed in this report are as follows:
This tabular presentation provides basic information covering each of the programs. In each case, a brief program description is followed by information on major amendments in the Agricultural Act of 2014 (P.L. 113-79, 2014 farm bill);, national scope and availability;, states with the greatest participation;, the backlog of applications or other measures of continuing interest;, program funding authority; FY2016 funding; FY2017 Administration budget request; FY2017 proposed funding where available;, FY2017 funding, FY2018 Administration budget request, statutory authority;, the authorization expiration date;, and a link to the program's website.
The U.S. Department of Agriculture (USDA) administers a number of agricultural conservation programs that assist private landowners with natural resource concerns. These include working land programs, land retirement and easement programs, watershed programs, emergency programs, technical assistance, and other programs. The number and funding levels for agricultural conservation programsprograms have steadily increased over the past 60 years. Early conservation efforts undertaken by Congress were focused on reducing high levels of soil erosion and providing water to agriculture in quantities and quality that enhanced farm production. Congress responded to these issues by creating and revising programs designed to reduce resource problems on the farm. By the early 1980s, however, concern was growing that these programs were not adequately dealing with environmental problems resulting from agricultural activities (especially off the farm). In 1985, conservation policy took a new direction when Congress passed the Food Security Act of 1985 (1985 farm bill, P.L. 99-198), which established the first conservation programs designed to deal with environmental issues resulting from agricultural activities.
Provisions enacted in subsequent farm bills, including in 1990, 1996, 2002, 2008, and 2014,1 reflect a rapid evolution of the conservation agenda, including the growing influence of environmentalists and other non-agricultural interests in the formulation of conservation policy, and a recognition that agriculture was not treated like other business sectors in many environmental laws.2 Congress also began funding many of these new programs through mandatory spending for the first time, using the borrowing authority of USDA's Commodity Credit Corporation (CCC)3 as the funding mechanism instead of annual appropriations. In addition to the original soil erosion and water quality and quantity issues, the conservation agenda has continued to expand to address other natural resource concerns, such as wildlife habitat, air quality, wetlands restoration and protection, energy efficiency, and sustainable agriculture.
Lead agricultural conservation agencies within USDA are the Natural Resources Conservation Service (NRCS), which provides technical assistance and administers most conservation programs, and the Farm Service Agency (FSA), which administers the Conservation Reserve Program (CRP). These agencies are supported by others in USDA that supply research and educational assistance, including the Agricultural Research Service (ARS), the Economic Research Service (ERS), the National Institute of Food and Agriculture (NIFA), and the Forest Service (FS).4 In addition, theagricultural conservation effort involvesprograms involve a large array of partners, including other federal agencies, state and local governments, and private organizations, among others, who provide funds, expertise, and other forms of assistance to thefurther agricultural conservation effortefforts.
USDA provides technical and financial assistance to attract interest and encourage participation in conservation programs. Participation in all USDA conservation programs is voluntary. These programs protect soil, water, wildlife, and other natural resources on privately owned agricultural lands to limit environmental impacts of production activities both on and off the farm, while maintaining or improving production of food and fiber. Some of these programs center on improving or restoring resources that have been degraded, while others create conditions to limit degradation in the future.
|
USDA Agricultural Conservation Programs Working Lands Programs—typically classified as programs that allow private land to remain in production, while implementing various conservation practices to address natural resource concerns specific to the area.
Land Retirement and Easement Programs—land retirement programs provide federal payments to private agricultural landowners for temporary changes in land use or management to achieve environmental benefits. Conversely, conservation easements impose a permanent or long-term land-use restriction that is voluntarily placed on the land in exchange for a government payment.
Watershed Programs—NRCS partners with local sponsors to carry out activities for soil conservation; flood prevention; conservation, development, utilization, and disposal of water; watershed surveys; and dam rehabilitation.
Emergency Programs—provide disaster assistance for farmland rehabilitation and impairments to watersheds. Programs are usually funded through supplemental appropriation acts.
Compliance—
Technical Assistance Programs—provides landowners with science-based conservation information and technical expertise (e.g., engineering and biological) unique to the region and land use type. Usually does not include financial assistance.
Other Conservation Programs and Provisions—Conservation Innovation Grants, Grassroots Source Water Protection Program, Regional Conservation Partnership Program (RCPP), Voluntary Public Access and Habitat Incentive Program, and Water Bank Program. |
Though programs in this report are listed alphabetically, agricultural conservation programs can be grouped into the following categories based on similarities: working land programs, land retirement and easement programs, watershed programs, emergency programs,5 compliance,6 technical assistance, and other programs and overarching provisions.
The majority of conservation programs are funded through USDA's Commodity Credit Corporation (CCC) as mandatory spending. Congress authorizes mandatory programs at specified funding levels (or acreage enrollment levels for CRP and CSP) for multiple years, typically through omnibus legislation such as the farm bill. Mandatory programs are funded at these levels unless Congress limits funding to a lower amount through the appropriations or legislative process (or puts a ceiling on acreage that can be enrolled).7 Discretionary programs are funded each year through the annual appropriations process.8
Despite a steady increase in mandatory funding authority, many conservation programs have been reduced or capped through annual appropriation acts since FY2003. Many of these spending reductions were at the request of the Administration.9 The mix of programs and amounts of reduction have varied from year to year. Some programs, such as the CRP, have not been reduced by appropriators in recent years, while others, such as EQIP, have been repeatedly reduced below authorized levels. Overall authorizedAuthorized mandatory funding for conservation programs washas been reduced by over $5 billion between FY2006 and FY2016a total of more than $6 billion over 10 years.
Sequestration has also had an effect on conservation programs. Sequestration is a process of automatic, largely across-the-board reductions that permanently cancel mandatory and/or discretionary budget authority to enforce statutory budget goals.10 Discretionary accounts have avoided sequestration in recent years through adjustments to spending limits, however, sequestration continues on mandatory accounts. Most all mandatory conservation programs were subject to sequestration in FY2014, FY2015, FY2016, through FY2017 and likely will be again in FY2017FY2018.11 Even with sequestration and appropriations act reductions, total annual mandatory funding for conservation programs has grown from a total of $3.6 billion in FY2006 to over $5 billion in FY2016FY2017.
Before the 1985 farm bill, few conservation programs existed, and only two would be considered large by today's standards. In contrast, leading up to the debate on the 2014 farm bill, there were over 20 distinct conservation programs with total annual spending greater than $5 billion. The differences and number of these programs created general confusion about the purpose, participation, and policies of the programs. Discussion about simplifying or consolidating conservation programs to reduce overlap and duplication, and to generate savings, continued for a number of years. The Agricultural Act of 2014 (P.L. 113-79, 2014 farm bill), contained several program consolidation measures, including the repeal of 12 active and inactive programs, the creation of two new programs, and the merging of two programs into existing ones.12
A number of conservation programs were repealed by the 2014 farm bill or have gone unfunded by Congress in recent years. Table 1 lists these programs and the most recent congressional action taken.
|
Program Name |
Action-Year |
Description |
|
Agricultural Water Enhancement Program (AWEP) |
Repealed-2014 |
A sub-program of EQIP that provided funding for water quality and quantity projects. Repealed in the 2014 farm bill and incorporated into RCPP. |
|
Chesapeake Bay Watershed Program |
Repealed-2014 |
Provided additional funding through existing programs to conservation projects in the Chesapeake Bay watershed. Repealed in the 2014 farm bill and incorporated into RCPP. |
|
Conservation Security Program |
New enrollment unauthorized-2008 |
Replaced by the Conservation Stewardship Program in the 2008 farm bill, the program enrolled acres in 5- to 10-year stewardship contracts, the last of which will expire in FY2018. |
|
Farmland Protection Program (FPP) |
Repealed-2014 |
An agricultural land easement program repealed in the 2014 farm bill. Program components were incorporated into |
|
Grasslands Reserve Program (GRP) |
Repealed-2014 |
A grassland easement and contract program repealed in the 2014 farm bill. Easement provisions were incorporated into ACEP and rental contracts were incorporated into CRP. |
|
Resource Conservation and Program (RC&D) Development |
Unfunded since-FY2011 |
Funded local RC&D coordinator positions. Funding terminated in FY2011 and program close-out complete in FY2012. FY2014 appropriations act permanently cancelled any remaining funds. |
|
Watershed Surveys and Planning |
Unfunded since-FY2007 |
Funded investigations and surveys of river basins to respond to water quality, flooding, water and land management, and sedimentation problems. |
|
Wetland Reserve Program (WRP) |
Repealed-2014 |
A wetland easement program repealed in the 2014 farm bill. Program components were incorporated into ACEP. |
|
Wildlife Habitat Incentives Program |
Repealed-2014 |
A wildlife habitat cost-share assistance program repealed in the 2014 farm bill. Program components were incorporated into EQIP. |
Source: CRS.
The tabular presentation that follows provides basic information covering each of the USDA agricultural conservation programs, including
Information for the following tables is drawn from agency budget presentations, explanatory notes, and websites; written responses to questions published each year in hearing records of the Agriculture Appropriations Subcommittees of the House and Senate Appropriations Committees; and spending estimates from the Congressional Budget Office. Further information about these programs may be found on the NRCS website at http://www.nrcs.usda.gov and on the "conservation programs" page of the FSA website at http://www.fsa.usda.gov.
|
Administering agency(s) |
NRCS |
|
Program description |
ACEP provides financial and technical assistance through two types of easements: agricultural land easements that limit non-agricultural uses on productive farm or grass lands, and wetland reserve easements that protect and restore wetlands. Agricultural Land Easements (ALE)—Enrollment is through eligible entities that enter into cooperative agreement to obligate ACEP funds. The entities acquire easements and hold, monitor, manage, and enforce the easements. The federal share of easement acquisition cannot exceed 50% of the appraised fair market value or 75% if it is determined to be a grassland of special environmental significance. Wetland Reserve Easement (WRE)—Enrollment options (federal share) include permanent easements (100% easement value and 75%-100% restoration cost), 30-year easements (50%-75% easement value and 50%-75% restoration cost), term easements or the maximum duration under state law (50%-75% easement value and 50%-75% restoration cost), and 30-year contracts only available to Indian tribes (50%-75% easement value and 50%-75% restoration cost). NRCS pays all costs associated with recording the easement. |
|
Major 2014 farm bill amendments |
Created in the 2014 farm bill from three repealed programs—Farmland Protection Program, Grassland Reserve Program, and Wetlands Reserve Program. General program provisions are the same across both easement types, including ineligible land; subordination, exchange, modification, and termination procedures; and compliance requirements. |
|
National scope |
Available nationwide. In |
|
Leading states |
The most funding obligated in |
|
Backlog/Interest |
Agricultural Land Easements (ALE)—In Wetland Reserve Easements (WRE)—In |
|
Funding authority |
Mandatory, subject to sequestration. FY2014—$400 million, FY2015—$425 million, FY2016—$450 million, FY2017—$500 million, and FY2018—$250 million. |
|
FY201 |
$ |
|
FY201 |
$500 million. |
|
FY2017 proposed funding |
|
|
Statutory authority |
Authorized in subtitle D of Title II (§2301) of the Agricultural Act of 2014 (P.L. 113-79) as §1265 of the Food Security Act of 1985 (P.L. 99-198), as amended. 16 U.S.C. 3865-3865d. |
|
Authorization expires |
September 30, 2018. |
|
Program website |
http://www.nrcs.usda.gov/wps/portal/nrcs/main/national/programs/easements/acep/ |
|
Administering agency(s) |
NRCS (conservation assistance), Agricultural Marketing Service (AMS, organic certification), and Risk Management Agency (RMA, production, price, or revenue risk reduction). |
|
Program description |
AMA provides cost-sharing assistance under contracts of |
|
Major 2014 farm bill amendments |
Both the House- and Senate-passed farm bills (H.R. 2642 and S. 954) included amendments to AMA, but none were adopted in the conference agreement. |
|
National scope |
Not available nationwide. Eligible states include CT, DE, HI, MD, MA, ME, NV, NH, NJ, NY, PA, RI, UT, VT, WV, and WY. As of the end of |
|
Leading states |
States with the most funds obligated (for conservation only) in |
|
Backlog/Interest |
A backlog of |
|
Funding authority |
Mandatory, subject to sequestration. Permanently authorized at $10 million for each fiscal year. Funding is split by law among the three USDA agencies: 50%—NRCS, 10%—AMS, and 40%—RMA. |
|
FY201 |
$9.3 million ($4.6 million for conservation; total authorization reduced by approximately $680,000 from sequestration). |
|
FY201 |
$ |
|
FY2017 proposed funding |
|
|
Statutory authority |
Authorized in Title I, §133 of the Agricultural Risk Protection Act of 2000 (P.L. 106-224) as §524(b) of the Federal Crop Insurance Act, as amended. 7 U.S.C. 1524(b). |
|
Authorization expires |
Permanent authorization. |
|
Program websites |
http://www.nrcs.usda.gov/wps/portal/nrcs/main/national/programs/financial/ama (NRCS); |
|
Administering agency(s) |
NRCS. |
|
Program description |
Conservation Operations (CO) is the primary account funding technical assistance within NRCS. More than 88% of CO funding is for Conservation Technical Assistance (CTA), which provides conservation planning and implementation assistance through field staff placed in almost all counties within the United States and territories. This assistance is provided to producers and land owners who voluntarily apply natural resource conservation systems, consisting of one or more practices, on private and other |
|
Major 2014 farm bill amendments |
None. |
|
National scope |
Available nationwide. CTA was funded at $ |
|
Leading states |
No data are available for the CTA subset in |
|
Backlog/Interest |
Not available. |
|
Funding authority |
Discretionary. No specific authorization level. |
|
FY201 |
$ |
|
FY201 |
$ |
|
FY2017 proposed funding |
|
|
Statutory authority |
Authorized in the Soil Conservation and Domestic Allotment Act (P.L. 74-46), as amended. 16 U.S.C. 590a-g, 16 U.S.C. 590q. |
|
Authorization expires |
Permanent authorization. |
|
Program website |
http://www.nrcs.usda.gov/programs/cta/ (CTA); http://www.nrcs.usda.gov/wps/portal/nrcs/site/soils/home/ (soil survey); http://www.wcc.nrcs.usda.gov/ (snow survey and water supply forecasting); and http://plant-materials.nrcs.usda.gov/ (plant materials centers). |
|
Administering agency(s) |
FSA, with technical assistance by NRCS. |
|
Program description |
CRP provides annual rental payments, usually over 10 years, to producers to replace crops on highly erodible and environmentally sensitive land with long-term resource-conserving plantings. Bids to enroll land are solicited during a limited time period, then compared using an Environmental Benefits Index (EBI). Those with the highest EBI scores are accepted. |
|
Major 2014 farm bill amendments |
Reduces enrollment ceiling from 32 million acres to 24 million acres by FY2018; amends emergency harvesting, grazing, and permits other use of forage, in some cases, without a reduction in rental rate; allows a one-time, penalty-free, early out in FY2015 for contracts enrolled longer than five years and containing no environmentally sensitive practices; and incorporates grassland contracts, similar to what was repealed under the Grassland Reserve Program (GRP). These grassland contracts are referred to as grassland sign-up. |
|
National scope |
The most recent general sign-up (#49) offered contracts to 1.857 million acres. The new grasslands component offered contracts to 1.013 million acres. As of April 2016, there are 650,043 active contracts on 364,662 farms with 23.9 million acres enrolled. |
|
Leading states |
Leading states in terms of total acres are TX ( |
|
Backlog/Interest |
|
|
Funding authority |
Mandatory, statutorily exempt from sequestration. At any one time, CRP can enroll no more than: 27.5 million acres in FY2014; 26 million acres in FY2015; 25 million acres in FY2016; and 24 million acres in FY2017 and FY2018. No funding amount specified. |
|
FY201 |
$ |
|
FY201 |
$ |
|
FY2017 est. proposed funding |
|
|
Statutory authority |
Authorized in §1231-§1235 of the Food Security Act of 1985 (P.L. 99-198), as amended. Amended in §2001-§2008 of the Agricultural Act of 2014 (P.L. 113-79). 16 U.S.C. 3831(a)-3835a. |
|
Authorization expires |
September 30, 2018. |
|
Program website |
http://www.fsa.usda.gov/programs-and-services/conservation-programs/conservation-reserve-program/ |
|
Administering agency(s) |
FSA, with technical assistance by NRCS. |
|
Program description |
This subprogram of CRP partners with states at their request. States propose sub-state areas, such as a watershed, where environmental or resource concerns are more concentrated and can be addressed by enrolling up to 100,000 acres per project. States contribute 20% of the funding |
|
Major 2014 farm bill amendments |
None. |
|
National scope |
There are 47 CREP agreements in 34 states, including |
|
Leading states |
Leading states in terms of acres enrolled are PA ( |
|
Backlog/Interest |
Not applicable since any eligible land can be enrolled at any time; participation has been much higher in some states than in others, but that is due, reportedly, to how the program is promoted and where eligible projects are located. Average rental payments are higher than for acreage under the general CRP sign-up process. |
|
Funding authority |
Unspecified acreage subset of CRP. |
|
FY201 |
Unspecified acreage subset of CRP. |
|
FY201 |
Unspecified acreage |
|
FY2017 proposed funding |
|
|
Statutory authority |
Authority derived from CRP statutory authority (see "Conservation Reserve Program (CRP)"). |
|
Authorization expires |
September 30, 2018. |
|
Program website |
|
Administering agency(s) |
FSA, with technical assistance by NRCS. |
|
Program description |
This 750,000 acre subprogram of the CRP enrolls small isolated agricultural wetlands. On a single tract of land, enrollment is set at a maximum of 40 contiguous wetland acres. "Flooded farmland" has a 20-acre limit. Eligible lands include wetlands that were cropped |
|
Major 2014 farm bill amendments |
Renames the pilot program "Farmable Wetland Program." Reauthorizes the program through FY2018, and clarifies language related to constructed wetlands receiving water from agricultural drainage. Reduces acreage limitation from 1 million acres to 750,000 acres. |
|
National scope |
Active contracts in |
|
Leading states |
In terms of acres, the leading states are ND ( |
|
Backlog/Interest |
Not applicable since any eligible land can be enrolled at any time; participation has been much higher in some states than in others, but that is due, reportedly, to how the program is promoted and the amount of eligible land |
|
Funding authority |
Mandatory, statutorily exempt from sequestration. No more than 750,000 acres enrolled at any one time and no more than 100,000 acres in any state (may be increased to 200,000 acres after agency review). |
|
FY201 |
Unspecified acreage subset of CRP. |
|
FY201 |
Unspecified acreage |
|
FY2017 proposed funding |
|
|
Statutory authority |
Authorized in Title XI of Agriculture and Related Agency appropriations, 2001 (P.L. 106-387) as §1231B of the Food Security Act of 1985 (P.L. 99-198), as amended. Amended by §2002 of the Agricultural Act of 2014 (P.L. 113-79). 16 U.S.C. 3831b. |
|
Authorization expires |
September 30, 2018. |
|
Program website |
http://www.fsa.usda.gov/ |
|
Administering agency(s) |
NRCS |
|
Program description |
CSP provides financial and technical assistance to promote the conservation and improvement of soil, water, air, energy, plant and animal life, and other conservation purposes on tribal and private working lands. Contracts (five years in length with the option of |
|
Major 2014 farm bill amendments |
Reduces the enrollment cap from 12.769 million acres annually to 10 million acres annually. Reorganizes the statutory language and refocuses the program on generating additional conservation benefits. Raises the entry bar for participants to two priority resource concerns upon entry and requires the participant to meet or exceed one additional priority resource concern by the end of the contract. Contract renewal participants must meet the threshold for two additional priority resources concerns, or exceed the threshold for two existing priority resource concerns. Removes the 10% limitation on nonindustrial private forest land and provides flexible transition options for land coming out of CRP. |
|
National scope |
Available nationwide. The program held its first sign-up in 2009, and at the end of |
|
Leading states |
In |
|
Backlog/Interest |
In |
|
Funding authority |
Mandatory, subject to sequestration. CSP can enroll up to 10 million acres each fiscal year. No funding amount specified. |
|
FY201 |
$1. |
|
FY201 |
|
|
FY2017 proposed funding |
|
|
Statutory authority |
Authorized in §2301 of the Food, Conservation, and Energy Act of 2008 (P.L. 110-246) as §1238D-§1238G of the Food Security Act of 1985 (P.L. 99-198), as amended. Amended in §2101 of the Agricultural Act of 2014 (P.L. 113-79). 16 U.S.C. 3838d-3838g. |
|
Authorization expires |
September 30, 2018. |
|
Program website |
http://www.nrcs.usda.gov/wps/portal/nrcs/main/national/programs/financial/csp |
|
Administering agency(s) |
FSA, with technical assistance by NRCS. |
|
Program description |
ECP provides emergency funding and technical assistance to producers to rehabilitate farmland damaged by natural disasters (e.g., hurricanes, floods, wind, and erosion) through activities such as removing debris, and implementing emergency water conservation measures in response to severe droughts. |
|
Major 2014 farm bill amendments |
None. |
|
National scope |
Available nationwide. Participation and funding varies widely |
|
Leading states |
Not applicable. |
|
Backlog/Interest |
Not applicable. |
|
Funding authority |
Discretionary. No specific authorization level. |
|
FY201 |
|
|
FY201 |
$ |
|
FY2017 proposed funding to date |
|
|
Statutory authority |
Authorized in §401 of the Agriculture Credit Act of 1978 (P.L. 95-334), as amended. 16 U.S.C. 2201-2205. |
|
Authorization expires |
Permanent authorization. |
|
Program website |
http://www.fsa.usda.gov/programs-and-services/conservation-programs/emergency-conservation/index |
|
Administering agency(s) |
FSA, with technical assistance by NRCS. |
|
Program description |
EFRP provides cost-share assistance to private forestland owners to repair and rehabilitate damage caused by a natural disaster on nonindustrial private forest land. Natural disasters include wildfires, hurricanes or excessive winds, drought, ice storms or blizzards, floods, or other resource-impacting events, as determined by USDA. |
|
Major 2014 farm bill amendments |
None. |
|
National scope |
Available nationwide. Participation and funding varies widely |
|
Leading states |
Not applicable. |
|
Backlog/Interest |
Not applicable. |
|
Funding authority |
Discretionary. No specific authorization level. |
|
FY201 |
$ |
|
FY201 |
$ |
|
FY2017 proposed funding to date |
|
|
Statutory authority |
Authorized in §8203 of the Food, Conservation, and Energy Act of 2008 (P.L. 110-246) as §407 of the Agriculture Credit Act of 1978 (P.L. 95-334). 16 U.S.C. 2206. |
|
Authorization expires |
Permanent authorization. |
|
Program website |
|
Administering agency(s) |
NRCS on private lands |
|
Program description |
EWP provides technical and financial assistance to reduce hazards to life and property in watersheds that have been damaged by natural disasters. Assistance includes disaster cleanup and recovery activities, and purchasing easements in floodplains that will benefit natural resources such as wetlands, while reducing the risk of exposure to future natural disasters. |
|
Major 2014 farm bill amendments |
Authorizes USDA to modify and terminate floodplain easements provided the current landowner agrees, and the modification or termination addresses a compelling public need for which there is no practical alternative, and is in the public interest. |
|
National scope |
Available nationwide. Participation and funding varies widely |
|
Leading states |
Not applicable. |
|
Backlog/Interest |
Not applicable. |
|
Funding authority |
Discretionary. No specific authorization level. |
|
FY201 |
|
|
FY201 |
$0 |
|
FY2017 proposed funding to date |
H.R. 5054: $5 million for emergencies not declared as a major disaster or emergency pursuant to the Stafford Act; S. 2956: $0. |
Statutory authority |
Authorized in §216 of P.L. 81-516 and §403 of the Agriculture Credit Act of 1978 (P.L. 95-334), as amended. Amended in §2506 of the Agricultural Act of 2014 (P.L. 113-79). 16 U.S.C. 2203; and 33 U.S.C. 701b-1. |
|
Authorization expires |
Permanent authorization. |
|
Program website |
http://www.nrcs.usda.gov/wps/portal/nrcs/main/national/programs/landscape/ewpp |
|
Administering agency(s) |
NRCS |
|
Program description |
EQIP provides financial and technical assistance to producers and land owners to plan and install structural, vegetative, and land management practices on eligible lands to alleviate natural resource problems. Eligible producers enter into contracts to receive payment for implementing conservation practices. Approved activities are carried out according to an EQIP plan developed in conjunction with the producer that identifies the appropriate conservation practice(s) to address |
|
Major 2014 farm bill amendments |
Incorporates the Wildlife Habitat Incentives Program (WHIP) into EQIP with a 5% allocation to wildlife habitat practices; removes the minimum one-year contract length requirement; adds veteran farmer or rancher to the list of certain producers eligible for cost-share rates up to 90% and advanced payments; raises the payment limit to an aggregate of $450,000 between FY2014-FY2018 and eliminates the waiver authority for contracts of environmental significance; repeals the Agricultural Water Enhancement Program (AWEP); reauthorizes the innovative grants program (see "EQIP—Conservation Innovation Grants (CIG)"); retains the allocation of 60% of funding each year to practices related to livestock production; and reauthorizes and reduces the air quality funding carve-out from $37.5 million to $25 million annually. |
|
National scope |
Available nationwide. In |
|
Leading states |
In |
|
Backlog/Interest |
In |
|
Funding authority |
Mandatory, subject to sequestration. FY2014—$1.35 billion, FY2015—$1.6 billion, FY2016—$1.65 billion, FY2017—$1.65 billion, and FY2018—$1.75 billion. |
|
FY201 |
$1. |
|
FY201 |
$1.65 billion. |
|
FY2017 proposed funding |
|
|
Statutory authority |
Authorized in subtitle D of Title III (§331-336) of the Federal Agriculture Improvement and Reform Act of 1996 (P.L. 104-127) as §1240-§1240G of the Food Security Act of 1985 (P.L. 99-198), as amended. Amended by §2201-§2206 of the Agricultural Act of 2014 (P.L. 113-79). 16 U.S.C. 3839aa-3839aa-7. |
|
Authorization expires |
September 30, 2018. |
|
Program website |
http://www.nrcs.usda.gov/wps/portal/nrcs/main/national/programs/financial/eqip |
|
Administering agency(s) |
NRCS |
|
Program description |
CIG is a subprogram of EQIP that awards competitive grants to state and local agencies, non-governmental organizations, tribes, and individuals to implement innovative conservation techniques and practices. Annual requests for proposals are posted on http://www.grants.gov and include separate funding categories for national and state level competitions. Examples of eligible projects include market systems for pollution reduction, demonstrating precision agriculture, capturing nutrients through a community anaerobic digester, and establishing a tribal partnership for regional habitat conservation. |
|
Major 2014 farm bill amendments |
Adds research and demonstration activities, and new technology pilot testing as eligible projects; reauthorizes but reduces the air quality funding carve-out to $25 million of EQIP annually through FY2018; and adds a reporting requirement that no later than December 31, 2014, and every two years thereafter, a report must be submitted to Congress regarding CIG funding, project results, and technology transfer efforts. |
|
National scope |
Available nationwide with select states offering state competitions. In |
|
Leading states |
None identified. |
|
Backlog/Interest |
None identified. |
|
Funding authority |
Unspecified subset of EQIP. |
|
FY201 |
Unspecified subset of EQIP. |
|
FY201 |
Unspecified subset of EQIP. |
|
FY2017 proposed funding |
Unspecified subset of EQIP. |
Statutory authority |
Authorized in §2301 of the Farm Security and Rural Investment Act of 2002 (P.L. 107-171) as §1240H of the Food Security Act of 1985 (P.L. 99-198), as amended. Amended by §2207 of the Agricultural Act of 2014 (P.L. 113-79). 16 U.S.C. 3839aa-8. |
|
Authorization expires |
September 30, 2018. |
|
Program website |
http://www.nrcs.usda.gov/wps/portal/nrcs/main/national/programs/financial/cig |
|
Administering agency(s) |
FSA |
|
Program description |
Grassroots Source Water Protection Program provides funding to the National Rural Water Association for technical assistance to operate state's source water protection program. Local programs encourage the voluntary adoption of practices that prevent drinking water pollution. |
|
Major 2014 farm bill amendments |
Reauthorizes discretionary funding authority and authorizes $5 million in mandatory funding to remain available until expended. |
|
National scope |
In September 2013, the program was expanded to all 50 states. |
|
Leading states |
Annual appropriations are divided equally among all states. |
|
Backlog/Interest |
None identified. |
|
Funding authority |
Mandatory, subject to sequestration: FY2014—$5 million (to remain available until expended). Discretionary: $20 million annually. |
|
FY201 |
$6.5 million. |
|
FY201 |
$0 |
|
FY2017 proposed funding | |
Statutory authority |
Authorized in §2502 of the Farm Security and Rural Investment Act of 2002 (P.L. 107-171) as §1240O of the Food Security Act of 1985 (P.L. 99-198), as amended. Amended by §2502 of the Agricultural Act of 2014 (P.L. 113-79). 16 U.S.C. 3839bb-2 |
|
Authorization expires |
September, 30, 2018. |
|
Program website |
http://www.fsa.usda.gov/programs-and-services/conservation-programs/source-water-protection/index |
|
Administering agency(s) |
NRCS |
|
Program description |
HFRP assists landowners in restoring and enhancing forest ecosystems using 10-year agreements, 30-year contracts, 30-year easements, and permanent easements. |
|
Major 2014 farm bill amendments |
Eliminates mandatory funding authority and replaces it with an authorization to receive appropriations. Adds a definition of "acreage owned by Indian tribes." Provides flexibility for funding technical assistance. |
|
National scope |
Not available nationwide. Limited participation in select states. As of the end of |
|
Leading states |
In |
|
Backlog/Interest |
Not available. |
|
Funding authority |
Discretionary. $12 million annually. |
|
FY201 |
$0 |
|
FY201 |
$ |
|
FY2017 proposed funding |
|
|
Statutory authority |
Authorized in Title V Healthy Forest Restoration Act of 2003 (P.L. 108-148), as amended. Amended by §8203 of the Agricultural Act of 2014 (P.L. 113-79). 16 U.S.C. 6572. |
|
Authorization expires |
September 30, 2018. |
|
Program website |
http://www.nrcs.usda.gov/wps/portal/nrcs/main/national/programs/easements/forests |
|
Administering agency(s) |
NRCS |
|
Program description |
RCPP provides financial and technical assistance for multi-state or watershed-scale projects. The program creates partnership opportunities to target and leverage federal conservation funding for specific areas and resource concerns. Project areas are defined by eligible partners and are selected through a competitive state or national competition. Partnership agreements are for five years with a possible one-year extension. In addition to defining the project area, providing assistance, and possibly acting on behalf of the producers within the project area, partners must also provide a "significant portion" of the overall cost of the project. Funds are also directed through "critical conservation areas" (CCA) selected by NRCS. |
|
Major 2014 farm bill amendments |
Created in the 2014 farm bill from four repealed programs—Agricultural Water Enhancement Program, the Cooperative Conservation Partnership Initiative, the Chesapeake Bay Watershed Program, and the Great Lakes Basin Program for soil erosion and sediment control. RCPP contracts follow the existing rules and requirements of the covered programs. |
|
National scope |
To be eligible for an RCPP contract, a producer must be located in either a CCA or a selected partnership area, but is not required to work with the sponsoring project partner and may choose to work directly with NRCS. Partnership applications are accepted in two phases: pre-proposal and full proposal. In |
|
Leading states |
Following the final selection in |
|
Backlog/Interest |
In |
|
Funding authority |
Mandatory, subject to sequestration. RCPP receives 7% of available covered conservation program funds (EQIP, CSP, ACEP, and HFRP) plus an additional $100 million annually. |
|
FY201 |
$93.2 million (authorization reduced by approximately $6.8 million from sequestration), plus 7% of available covered conservation program funds (minus sequestration). |
|
FY201 |
$100 million, plus 7% of available covered conservation program funds. |
|
FY2017 proposed funding |
|
|
Statutory authority |
Authorized in subtitle E of Title II (§2401) of the Agricultural Act of 2014 (P.L. 113-79) as §1271 of the Food Security Act of 1985 (P.L. 99-198), as amended. 16 U.S.C. 3871-3871f. |
|
Authorization expires |
September 30, 2018. |
|
Program website |
http://www.nrcs.usda.gov/wps/portal/nrcs/main/national/programs/farmbill/rcpp/ |
|
Administering agency(s) |
NRCS |
|
Program description |
The Voluntary Public Access and Habitat Incentive Program encourages owners and operators of privately held farm, ranch, and forest land to voluntarily make that land available for access by the public for wildlife-dependent recreation, including hunting or fishing, under programs implemented by state or tribal governments. Competitive grants are offered to states and tribal governments for expanding existing access programs or creating new programs. Grants are reduced by 25% if opening dates for migratory bird hunting in a state are not consistent for residents and nonresidents. |
|
Major 2014 farm bill amendments |
Reduces and extends authorization of mandatory funding. Requires USDA to submit a report to Congress no later than 2016 on the effectiveness of the program. |
|
National scope |
Available nationwide. |
|
Leading states |
|
|
Backlog/Interest |
|
|
Funding authority |
Mandatory, subject to sequestration. $40 million in total for the period of FY2014-FY2018. |
|
FY201 |
$ |
|
FY201 |
$ |
|
FY2017 proposed funding |
|
|
Statutory authority |
Authorized in Title II, §2606 of the Food, Conservation, and Energy Act of 2008 (P.L. 110-246) as §1240R of the Food Security Act of 1985 (P.L. 99-198), as amended. Amended by §2503 of the Agricultural Act of 2014 (P.L. 113-79). 16 U.S.C. 3839bb-5. |
|
Authorization expires |
September 30, 2018. |
|
Program website |
http://www.nrcs.usda.gov/wps/portal/nrcs/detail/national/programs/farmbill/?cid=stelprdb1242739 |
|
Administering agency(s) |
NRCS |
|
Program description |
The Water Bank Program offers 10-year, non-renewable rental agreements to landowners to maintain wetlands in lieu of draining the land for agricultural production. No financial assistance is offered for conservation practices. Applications are ranked based on land use type and flooding impact. Payment rates are as follows: $50/acre/year for cropland, $35/acre/year for pasture and range land (grazing lands), and $20/acre/year for forestland. The program was authorized in 1970 and operated until funding was eliminated in 1994 in favor of longer-term conservation programs. After 17 years of no funding, the program was appropriated $7.5 million in FY2012. These funds were obligated exclusively for agreements in Minnesota, North Dakota, and South Dakota and were focused on flood reduction. |
|
Major 2014 farm bill amendments |
None. |
|
National scope |
Not available nationwide. Eligible states include MN, ND, and SD. In |
|
Leading states |
In |
|
Backlog/Interest |
In |
|
Funding authority |
Discretionary. No specific authorization level. |
|
FY201 |
$4 million. |
|
FY201 |
$0 |
|
FY2017 proposed funding | |
Statutory authority |
Authorized in the Water Bank Act (P.L. 91-559), as amended. 16 U.S.C. 1301-1311. |
|
Authorization expires |
Permanent authorization. |
|
Program website |
http://www.nrcs.usda.gov/wps/portal/nrcs/detail/national/programs/financial/?&cid=stelprdb1047790 |
|
Administering agency(s) |
NRCS |
|
Program description |
Also referred to as the Small Watershed Program, Watershed and Flood Prevention Operations are two separate authorizations under which more than 11,000 structures have been built |
|
Major 2014 farm bill amendments |
None. |
|
National scope |
Available nationwide. |
|
Leading states |
None identified. |
|
Backlog/Interest |
An estimated $921 million is needed to install the remaining measures in the 302 active watershed projects. States with the greatest dollar value of unfunded federal commitments are TX ($245 million), OK ($126 million), and MO ($111 million). |
|
Funding authority |
Discretionary. No specific authorization level. |
|
FY201 |
$ |
|
FY201 |
$0 |
|
FY2017 proposed funding |
H.R. 5054: $0; S. 2956: $150 million and $5.6 million congressionally directed from Conservation Operations. |
Statutory authority |
Authorized in the Flood Control Act of 1944 (P.L. 78-534), as amended, and the Watershed Protection and Flood Prevention Act (P.L. 83-566), as amended. 33 U.S.C. 701b-1 and 16 U.S.C. |
|
Authorization expires |
Permanent authorization. |
|
Program website |
http://www.nrcs.usda.gov/wps/portal/nrcs/detailfull/national/programs/landscape/?&cid=nrcs143_008271 |
|
Administering agency(s) |
NRCS |
|
Program description |
The Watershed Rehabilitation Program provides technical and financial assistance for planning, design, and implementation to rehabilitate aging watershed dam projects (including upgrading or removing dams) in communities to address health and safety concerns. Only dams constructed under the Watershed and Flood Prevention Operations program are eligible. Small watershed project dams have a 50-year design life |
|
Major 2014 farm bill amendments |
Reauthorizes both mandatory and discretionary funding authority. |
|
National scope |
Only available for dams built through the Watershed and Flood Prevention Operations program and the Resource Conservation and Development (RC&D) program. A total of 269 rehabilitation projects have been authorized in 31 states between FY2000 and |
|
Leading states |
States with the largest number of dam projects funded over the life of the program (2000- |
|
Backlog/Interest |
In FY2015, over $502 million in requests were received from public sponsors to rehabilitate 393 dams. |
|
Funding authority |
Mandatory, subject to sequestration: FY2014—$250 million (to remain available until expended). Discretionary: FY2008-FY2018—$85 million annually. |
|
FY201 |
$12 million in discretionary funding and $ |
|
FY201 |
$0 in discretionary funding and $ |
|
FY2017 proposed funding | |
Statutory authority |
Authorized in §313 of the Grain Standards and Warehouse Improvement Act of 2000 (P.L. 106-472) as §14 of the Watershed Protection and Flood Prevention Act, as amended. Amended by §2505 of the Agricultural Act of 2014 (P.L. 113-79). 16 U.S.C. 1012. |
|
Authorization expires |
September 30, 2018. |
|
Program website |
http://www.nrcs.usda.gov/wps/portal/nrcs/main/national/programs/landscape/wr |
Author Contact Information
| 1. |
Conservation and Trade Act of 1990 (P.L. 101-624), Federal Agricultural Improvement and Reform Act of 1996 (P.L. 104-127), Farm Security and Rural Investment Act of 2002 (P.L. 107-171), Food, Conservation, and Energy Act of 2008 (P.L. 110-246), and Agricultural Act of 2014 (P.L. 113-79). |
| 2. |
For additional discussion on conservation in the farm bill, see CRS Report R43504, Conservation Provisions in the 2014 Farm Bill (P.L. 113-79). |
| 3. |
The CCC is the funding mechanism for the mandatory payments that are administered by various agencies of USDA, including all of the farm commodity price and income support programs. For more information on the CCC, see CRS Report R44606, The Commodity Credit Corporation: In Brief. |
| 4. |
For more information on ARS projects, see http://www.ars.usda.gov/Research/Research.htm; ERS projects, see http://www.ers.usda.gov/topics/natural-resources-environment/conservation-programs.aspx; NIFA programs, see http://www.nifa.usda.gov/nea/nre/nre.cfm; and FS projects, see http://www.fs.fed.us/projects/. |
| 5. |
Additional information on emergency land rehabilitation programs may be found in CRS Report R42854, Emergency Assistance for Agricultural Land Rehabilitation. |
| 6. |
Compliance refers to a series of farm bill provisions that require a minimum level of conservation on environmentally sensitive land in exchange for access to other USDA program benefits. Compliance provisions are not discussed in this report. Additional analysis may be found in CRS Report R42459, Conservation Compliance and U.S. Farm Policy. |
| 7. |
For additional discussion on these reductions, see CRS In Focus IF10041, Reductions to Mandatory Agricultural Conservation Programs in Appropriations Law. |
| 8. |
For additional information on the FY2016 appropriation, see CRS Report R44240, Agriculture and Related Agencies: FY2016 Appropriations. |
| 9. |
The FY2017 Administration's request is the first since FY2003 to not include a reduction of mandatory funding for conservation programs. |
| 10. |
For additional information on sequestration and the budget process, see CRS Report R42972, Sequestration as a Budget Enforcement Process: Frequently Asked Questions. |
| 11. |
The Conservation Reserve Program is statutorily exempt from sequestration (2 U.S.C. 905 (g)(1)(A)). Sequestration reductions in FY2014 were reflected in the Congressional Budget Office (CBO) baseline that was used to write the 2014 farm bill. For more information, see CRS Report R42484, Budget Issues That Shaped the 2014 Farm Bill. Sequestration estimates for FY2015, FY2016, and FY2017 may be found in the Office of Management and Budget's (OMB) Reports to the Congress on the Joint Committee Reductions can be found at https://www.whitehouse.gov/omb/legislative_reports. |
| 12. |
For additional information on the amendments to conservation programs in the 2014 farm bill, see CRS Report R43504, Conservation Provisions in the 2014 Farm Bill (P.L. 113-79). |
| 13. |
The Trump Administration released it full budget request on May 23, 2017. This proposal included specific amounts for FY2018 agricultural appropriations as well as legislative changes to mandatory spending program, including those authorized in farm bills. In some cases the levels requested as part of the FY2018 agricultural appropriations did not align with the proposed legislative changes. Where possible, these conflicting areas are highlighted in this report. The requested FY2018 agricultural appropriation amount is listed as USDA Budget and comes from the U.S. Department of Agriculture, 2018 Budget Explanatory Notes for Committee on Appropriations, May 2017. The President's request for legislative changes to mandatory spending programs is listed as OMB Reforms and comes from the Office of Management and Budget, President's Budget for FY2018: Major Savings and Reforms, May 2017. |