Agriculture and Related Agencies: FY2021 Appropriations
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Agriculture and Related Agencies:
July 21November 20, 2020 , 2020
FY2021 Appropriations
Jim Monke
The Agriculture appropriations The Agriculture appropriationsbill bil funds the U.S. Department of Agriculture (USDA) funds the U.S. Department of Agriculture (USDA)
Specialist in Agricultural Specialist in Agricultural
except for the U.S. Forest Service. It also funds the Food and Drug Administration except for the U.S. Forest Service. It also funds the Food and Drug Administration
Policy Policy
(FDA) and—in even-numbered fiscal years—the Commodity Futures Trading (FDA) and—in even-numbered fiscal years—the Commodity Futures Trading
Commission (CFTC). Commission (CFTC).
Agriculture appropriations include both mandatory and discretionary spending. Discretionary amounts, though, Agriculture appropriations include both mandatory and discretionary spending. Discretionary amounts, though,
are the primary focus during the are the primary focus during thebillbil ’s development. The largest discretionary spending items are the Special ’s development. The largest discretionary spending items are the Special
Supplemental Nutrition Program for Women, Infants, and Children (WIC); agricultural research; rural Supplemental Nutrition Program for Women, Infants, and Children (WIC); agricultural research; rural
development; FDA; foreign food assistance and trade; farm assistance loans and salaries; food safety inspection; development; FDA; foreign food assistance and trade; farm assistance loans and salaries; food safety inspection;
animal and plant health programs; and technical assistance for conservation programs. animal and plant health programs; and technical assistance for conservation programs.
On July 9, 2020, the House Appropriations Committee reported a FY2021 Agriculture appropriations bill (H.R.
7610). The House-reported bill was added as Division B of a four-bill minibus appropriation (H.R. 7608) that is
scheduled for consideration. The House-reported bill would provide $23.97 billion in discretionary appropriations
for FY2021, an increase of $489 millionFY2021 began on October 1, 2020, under a continuing resolution (P.L. 116-159) that lasts until December 11, 2020. In the regular appropriations cycle, the House passed a four-bil FY2021 minibus appropriation on July 24,
2020, which contained the Agriculture appropriations bil . The Senate has not marked up or reported any appropriations bil s for FY2021. However, the Senate Appropriations Committee released a draft measure and
explanatory statement on November 10, 2020.
The House-passed bil (H.R. 7608, Division B) would provide $23.97 bil ion in discretionary appropriations, an increase of $488 mil ion (+2%) over the regular annual FY2020 appropriation. The primary (+2%) over the regular annual FY2020 appropriation. The primary
changes in the House-reported bill compared tochanges compared with FY2020 include increases for rural broadband (+$615 FY2020 include increases for rural broadband (+$615 millionmil ion), ),
foreign assistance (+$72 foreign assistance (+$72million), and the FDA (+$41 million). The bill would reducemil ion), food safety and regulatory agencies (+63 mil ion), and the Food and Drug Administration (FDA, +$47 mil ion). The bil would provide less than in FY2020 for domestic nutrition domestic nutrition
programs (-$183 million), rural development (-$17 million), the CFTC (-$11 million), and other programs in
General Provisions (-$32 million).
The Senate has not yet marked up an FY2021 Agriculture appropriations bill.
The Trump Administration requests $19.9 billionprograms (-$183 mil ion), agricultural research (-$81
mil ion), administration (-$35 mil ion), and the Commodity Futures Trading Commission (CFTC, -$11 mil ion).
The Senate draft would provide $23.32 bil ion in discretionary appropriations, an increase of $143 mil ion (+1%) over FY2020 on a comparable basis after adjusting for differences in committee jurisdictions. The Senate draft
would provide $345 mil ion less than the House-passed bil (-1%), mostly for rural broadband (-$590 mil ion) and rural development (-$127 mil ion), but relatively more for domestic nutrition programs after accounting for rescissions (+$402 mil ion).
General y speaking, both the House-passed bil and the Senate draft do not include most of the reductions proposed by the Trump Administration, which had requested $19.9 bil ion for discretionary-funded accounts
for discretionary-funded accounts within the jurisdiction of within the jurisdiction of
Agriculture appropriations subcommittees. The Agriculture appropriations subcommittees. Therequest would beAdministration’s request would have been a reduction of $3.6 a reduction of $3.6 billionbil ion from FY2020 (-15%), including from FY2020 (-15%).
The primary changes in the Administration’s request includes reductions to foreign food assistance (-$1.97 to foreign food assistance (-$1.97
billionbil ion); domestic nutrition assistance (-$1.06 ); domestic nutrition assistance (-$1.06 billionbil ion); and agricultural research, rural development, regulatory, ); and agricultural research, rural development, regulatory,
and farm production and conservation agencies (-$530 and farm production and conservation agencies (-$530million). The overall nondefense spending cap for FY2021
that Congress may use to develop the FY2021 appropriations is about 1% higher than in FY2020mil ion). .
Separate from the regular FY2020 annual appropriation, Congress passed four supplemental appropriations acts in Separate from the regular FY2020 annual appropriation, Congress passed four supplemental appropriations acts in
response to the COVID-19 pandemic, response to the COVID-19 pandemic,all al designated as emergency spending. These acts provide $53 designated as emergency spending. These acts provide $53 billionbil ion
during FY2020 to programs in the jurisdiction of the Agriculture appropriations subcommittees. Of this, $36 during FY2020 to programs in the jurisdiction of the Agriculture appropriations subcommittees. Of this, $36
billion bil ion are specified supplemental amounts, $3 are specified supplemental amounts, $3 billionbil ion is from an indefinite authorization, and $14 is from an indefinite authorization, and $14 billion bil ion is is
reimbursement for past obligations that is comparable to the annual appropriation. reimbursement for past obligations that is comparable to the annual appropriation.
Congressional Research Service Congressional Research Service
Agriculture and Related Agencies: FY2021 Appropriations
Figure 1.Discretionary Agriculture Appropriations, by Title, FY2020-FY2021 Discretionary Agriculture Appropriations, by Title, FY2020-FY2021
Source:CRS, using P.L. 116-94, House Cmte. Print 38-679, unpublished CBO tables, OMB FY2021 Budget of the U.S. Government,
Appendix, and USDA FY2020 Budget Explanatory Notes.
Note: Admin. = Trump Administration Budget Request. House = House-reported H.R. 7610.Congressional Research Service. Note: CFTC = Commodity CFTC = Commodity Futures Trading Futures Trading
Commission.Commission. For comparability, includes CFTC in Related Agencies in For comparability, includes CFTC in Related Agencies in all al columns regardlesscolumns regardless of jurisdiction. of jurisdiction.
Congressional Research Service Congressional Research Service
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Contents
Status of FY2021 Agriculture Appropriations ................................................................................. 1
Scope of Agriculture Appropriations ............................................................................................... 4
Recent Trends in Agriculture Appropriations .................................................................................. 6
Action on FY2021 Appropriations 6 Budget Caps and Subcommittee Allocations........................................................................ 7
Budget Resolution ............................ 7
Administration’s Budget Request ......................................................................... 7
Budget Caps ........................ 7
Budget Caps, Subcommittee Allocations, and Sequestration .................................................... 8
Budget Resolution ................................. 7 Discretionary Spending Al ocations .............................................................................. 8
Budget Caps
Action on FY2021 Appropriations ..................................................................................... 8
Administration’s Budget Request ................................... 9
Discretionary Spending Allocations .............................................. 8 House Action ..................................... 9
House Action ..................................................................... 10 Senate Action........................................................... 10
Senate Action ............................................... 11 Continuing Resolution............................................................................. 11
Other Appropriations Issues .................................. 12
Other Appropriations Issues ........................................................................................... 18. 21
Policy-Related Provisions ....................................................................................................... 18 21
COVID-19 Supplemental Appropriations in FY2020 ............................................................. 18
Budget Sequestration Continues on Mandatory Spending ........................... 21
Figures Figure 1.Discretionary Agriculture Appropriations, by Title, FY2020-FY2021........................... 19
Figures 3
Figure12. Timeline of Action on Agriculture Appropriations, FY2011-FY2021 ............................. 3
Figure23. Scope of Agriculture and Related Agencies Appropriations ............................................ 5
Figure34. Discretionary Agriculture Appropriations, by Title, FY2011-FY2021 ............................ 6
Figure45. BCA Discretionary Limits, FY2014-FY2021 .................................................................. 9
8 Tables
Table 1. Status of FY2021 Agriculture Appropriations ................................................................... 1
Table 2. Agriculture and Related Agencies Appropriations, by Title, FY2020-FY2021 ................. 2
Table 3. Agriculture and Related Agencies Appropriations, by Agency, FY2019-FY2021 .......... 12
15 Table A-1. USDA Departmental Administration Appropriations .................................................. 20 23
Table B-1. General Provisions: Changes in Mandatory Program Spending (CHIMPS) ............... 22 25
Table B-2. General Provisions: Rescissions from Discretionary Accounts ................................... 23 26
Table B-3. General Provisions: Other Appropriations ................................................................... 23 27
Table B-4. General Provisions: Scorekeeping Adjustments .......................................................... 26 30
Table C-1. Summary of Sequestration on Agriculture Accounts ................................................... 27 31
Table D-1. Congressional Action on Agriculture Appropriations Since FY1996 .......................... 30
34 Congressional Research Service link to page 28 link to page 30 link to page 36 link to page 39 link to page 40 Agriculture and Related Agencies: FY2021 Appropriations Appendixes
Appendix A. Appropriations in Administrative Accounts ............................................................. 20
Congressional Research Service
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23 Appendix B. Appropriations in General Provisions ...................................................................... 22 25
Appendix C. Budget Sequestration ............................................................................................... 27 31
Appendix D. Action on Agriculture Appropriations, FY1996-FY2021 ........................................ 30 34
Contacts
Author Information ........................................................................................................................ 31 35
Congressional Research Service Congressional Research Service
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Status of FY2021 Agriculture Appropriations
On July 9, 2020, the House Appropriations Committee reported a FY2021 Agriculture
appropriations bill (H.R. 7610; Table 1). The reported bill was added as Division B of a four-bill
minibus appropriation (H.R. 7608) that is scheduled for consideration in the House. The Senate
has not yet marked up an FY2021 Agriculture appropriations bill. See Figure 1 for a In the absence of an enacted full-year appropriation, FY2021 began on October 1, 2020, under a
continuing resolution (P.L. 116-159), which lasts until December 11, 2020.
In the regular procedural cycle for the annual appropriation, the House passed a four-bil FY2021 minibus appropriation (H.R. 7608) on July 24, 2020, which contained the Agriculture appropriations bil as Division B (Table 1). It carries the text of the committee-reported Agriculture appropriations bil (H.R. 7610), as amended. The Senate Appropriations Committee released a draft measure and explanatory statement on November 10, 2020. See Figure 2 for a
comparison comparison
of timelines aof timelines and Appendix D for more details. for more details.
Table 1. Status of FY2021 Agriculture Appropriations
Continuing Final House Action
Senate Action
Administration
FinalResolution
Appropriation
Administration
Request
Subcmte.
Cmte.
Floor
Subcmte.
Cmte.
Floor
Appropriation
2/10/2020 2/10/2020
7/6/2020 7/6/2020
7/9/2020 7/9/2020
—
—
—
—7/24/2020
—
11/10/2020
—
10/1/2020
— —
OMB Budget OMB Budget
Appendix Appendix
Draf Drafta
H.R. 7610 H.R. 7610
USDA
Voice vote
H.Rept.
FDA
116-446
CFTC
Voice vote
FCA
Source: CRS, compiled from Congress.gov, H.R. 7608
Draftb
P.L. 116-159
USDA
Voice vote
H.Rept.
Division B
until 12/11/2020
FDA
116-446
Vote of
CFTC
Voice vote
224-189
FCA
Source: Congressional Research Service (CRS), compiled from Congress.gov, OMB, and agency websites. OMB, and agency websites.
Note: OMB = Office of Management and Budget, USDA = U.S.OMB = Office of Management and Budget, USDA = U.S. Department of Agriculture,Department of Agriculture, FDA = Food and FDA = Food and
Drug Administration,Drug Administration, CFTC = Commodity Futures Trading Commission,CFTC = Commodity Futures Trading Commission, and FCA = Farmand FCA = Farm Credit Credit
Administration. Administration.
a. a.DraftThe House subcommittee draft is available at https://appropriations.house.gov/legislation/agriculture- is available at https://appropriations.house.gov/legislation/agriculture-
subcommittee-legislative-activity. subcommittee-legislative-activity.
The House-reported bill would provide $23.97 billionb. The Senate Appropriations Committee released subcommittee drafts at https://www.appropriations.
senate.gov/news/committee-releases-fy21-bil s-in-effort-to-advance-process-produce-bipartisan-results.
The House-passed bil would provide $23.97 bil ion in discretionary appropriations, an increase in discretionary appropriations, an increase
of $of $489 million 488 mil ion (+2%) over the regular annual FY2020 appropriation (+2%) over the regular annual FY2020 appropriation (Table 2). The primary . The primary
changes changesin the House-reported bill compared tocompared with FY2020 include increases for rural broadband FY2020 include increases for rural broadband
(+$615 (+$615millionmil ion), foreign assistance (+$72 ), foreign assistance (+$72 millionmil ion), food safety and regulatory agencies (+63 mil ion), and the Food and Drug Administration (FDA, ), and the Food and Drug Administration (FDA,
+$41 million). The bill would reduce domestic nutrition programs (-$183 million), rural
development (-$17 million), +$47 mil ion). The bil would provide less than in FY2020 for domestic nutrition programs (-$183 mil ion), agricultural research (-$81 mil ion), administration
(-$35 mil ion), and the Commodity Futures Trading Commission (CFTC, -$11 mil ion).
The Senate draft would provide $23.32 bil ion in discretionary appropriations, an increase of
$143 mil ion (+1%) over FY2020 and $345 mil ion less than the House (-1%) on a comparable basis after adjusting for differences in jurisdictions between the House and Senate.1 Compared with the House-passed bil , the Senate draft would provide less for rural broadband (-$590
1 Jurisdiction for Commodity Futures T rading Commission (CFT C)the Commodity Futures Trading Commission (CFTC, -$11 million),
and other programs in General Provisions (-$32 million).
The Administration’s budget requests $19.9 billion in discretionary spending for accounts in the
jurisdiction of the Agriculture appropriations bill in the House,1 a $3.6 billion reduction from
FY2020 (-15%). The primary changes in the Administration’s FY2021 request compared to
FY2020 include reductions to foreign assistance (-$1.97 billion) and domestic nutrition assistance
(-$1.06 billion) and reductions to agricultural research, rural development, regulatory, and farm
production and conservation agencies (-$530 million).
1 Jurisdiction for CFTC appropriations differs between the chambers. Since FY2008, appropriations differs between the chambers. Since FY2008, CFTC is CFT C is marked up in the marked up in the
Agriculture Subcommittee of the House Appropriations Committee and in the Financial ServicesAgriculture Subcommittee of the House Appropriations Committee and in the Financial Services and General and General
Government Subcommittee of the Senate Appropriations Committee. Government Subcommittee of the Senate Appropriations Committee.The enacted CFTCT he enacted CFT C appropriation is carried in the appropriation is carried in the
Agriculture Agriculture bill in evenbill in even -numbered fiscal years and in the Financial Services-numbered fiscal years and in the Financial Services bill in bill in odd-numberedodd-numbered fiscal fiscal years. years.
Congressional Research Service Congressional Research Service
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mil ion) and rural development (-$127 mil ion) but relatively more for domestic nutrition programs after accounting for rescissions (+$402 mil ion). Table 2. Agriculture and Related Agencies Appropriations, by Title, FY2020-FY2021
Budget authority in Budget authority inmillions of dollarsmil ions of dol ars (discretionary unless stated otherwise)
FY2020
FY2021
Change from FY2020 Title of Agriculture
COVID-19
Admin.
House-
FY2020 to
Title of Agriculture Appropriations Senate
to House-
to Senate
Appropriations Act
P.L. 116-94
Actsa
requestb
reported
Senaterequestb
passed
draft
Enacted
Housepassed
draft
I. Agricultural I. Agricultural Programs: Discretionary Programs
6,163.1 6,163.1
133.8 133.8
6,148.0 6,148.0
6, 6,155110.5
6,141.0
—
-52.6
-22.1.5
—
—
-7.6
Mandatory Mandatory
1,404.0 1,404.0
— —
1,359.9
1,359.9 1,359.9
— —
—-44.1
-44.1 -44.1
Subtotal Subtotal
7,567.1 7,567.1
— —
7,507.8
7,515.4
—
—
-51.8
II. Farm Production and Conservation Programs
7,470.4 7,500.9 — -96.8 -66.3 II. Farm Production, Conservation 2,819.0 2,819.0
3.0 3.0
2,618.7 2,618.7
2,835.5 2,835.5
—
—2,829.1
—
+16.5 +16.5
Mandatory
+10.2 Mandatory 36,268.5 36,268.5
14,000.0 14,000.0
34,269.6
34,269.6 34,269.6
— —
—-1,998.9
-1,998.9 -1,998.9
Subtotal Subtotal
39,087.5 39,087.5
14,003.0 14,003.0
36,888.3 36,888.3
37,105.1 37,105.1
—37,098.7
— —
-1,982.4 -1,982.4
-1,988.8 III. Rural Development III. Rural Development
3,240. 3,240.6c
45.5 45.5
3,410.5 3,410.5
3, 3,224.0
—
—
-16.6249.0c
3,121.2c
—
+8.4
-119.4
IV. Domestic IV. Domestic Food ProgramsFood Programs: Discretionary
6,566.0 6,566.0
1,350.0 1,350.0
5,700.7 5,700.7
6,383.3 6,383.3
—
—6,586.0
—
-182.7 -182.7
+20.0 Mandatory Mandatory
91,436.3 91,436.3
24,710.0 24,710.0
93,309.8
93,323.4
—
—
+1,887.1
93,851.9
93,368.6
—
+2,415.7
+1,932.4
Subtotal Subtotal
98,002.3 98,002.3
26,060.0 26,060.0
99,010.5
99,706.7
—
—
+1,704.4
V. Foreign 100,235.3
99,954.7
—
+2,232.9
+1,952.3
V. Foreign Assistance Assistance
2,172.7 2,172.7
4.0 4.0
205.9 205.9
2,244.4 2,244.4
—
—
+71.72,171.8
—
+71.7
-0.9
VI. Food and Drug Administration VI. Food and Drug Administration
3,171. 3,171.5c
163.0 163.0
3,220.4 3,220.4
3, 3,212218.3
3,211.5
—
+46.8
+40.0.3
—
—
+40.8
Commodity Commodity Futures Fut. Trading Trading CommissionComm.
315.0 315.0
—
226.5 226.5
304.0 304.0
—
—[304.0]
—
-11.0
-11.0 -11.0
VII. General VII. General Provisions: Provisions:
CHIMPS and rescission CHIMPS and rescissionsd
-1,006.1 -1,006.1
—
-1,200.0 -1,200.0
-988.0 -988.0
—
—
+18-800.0
—
+18.1
+206.1 .1
Emergency appropriations Emergency appropriations
535.0 535.0
—
0.0 0.0
—
—
——
0.0
—
-535.0
-535.0 -535.0
Other appropriations Other appropriations
440.3 440.3
12,600.0 12,600.0
0.0 0.0
1, 1,023036.4
483.9
—
+596.1
+43.6.4
—
—
+583.1
Scorekeeping Scorekeeping adjustmentadjustmentse
-398.0 -398.0
—
-424.0 -424.0
-421.0 -421.0
—
—-421.0
—
-23.0
-23.0 -23.0
Emergency designation Emergency designation in this bil
-535.0 -535.0
—a
0.0 0.0
—
—
——
0.0
—
+535.0 +535.0
Discretionary: +535.0
Senate basisSenate basis, w/o CFTC w/o CFTC
[23,169.1] [23,169.1]
14,299.3 14,299.3
19,680.2 [23, 19,680.2 [23,669668.4] .4]
—
—
+500.3
Discretionary: House basis23,323.4
—
+499.3
+154.3
House basis, w/ CFTC w/ CFTC
23,484.1 23,484.1
14,299.3 14,299.3
19,906.7 19,906.7
23, 23,973972.4
[23,627.4]
—
+488.3
+143.4
—
—
+489.3 .3
Mandatory Mandatory
129,108.8 129,108.8
38,710.0 38,710.0
128,939.3
128,952.8
—
—
-156.0
129,481.4
128,998.1
—
+372.6
-110.7
Total: Senate basis Total: Senate basis w/o CFTC
[152,278.0] [152,278.0]
53,009.3 53,009.3
148,619.4 [152,622.3]
—
—
+344.3 [153,149.9]
152,321.5
—
+871.9
+43.6
Total: House basis Total: House basisw/ CFTC
152,593.0 152,593.0
53,009.3 53,009.3
148,845.9
152,926.3
—
—
+333.3
153,453.9 [152,625.5]
—
+860.9
+32.6
Source: CRS, using appropriations text and reports CRS, using appropriations text and reports; and unpublished CBO tables. House-passed refers to H.R. 7608, Division B. Senate draft refers to the Senate Appropriations Committee draft from November 10, 2020. unpublished CBO tables; OMB FY2021 Budget of the U.S.
Government, Appendix; and USDA FY2020 Budget Explanatory Notes.
Notes: Amounts are nominal discretionary budget authority unless labeled otherwise.Amounts are nominal discretionary budget authority unless labeled otherwise. Bracketed amounts are Bracketed amounts are
not in the official totals due to differing House-Senate jurisdiction for CFTC but are shown for comparison. not in the official totals due to differing House-Senate jurisdiction for CFTC but are shown for comparison.
a. Total from four coronavirus supplemental appropriations acts (P.L. 116-123, P.L. 116-127, P.L. 116-136, P.L. a. Total from four coronavirus supplemental appropriations acts (P.L. 116-123, P.L. 116-127, P.L. 116-136, P.L.
116-139), 116-139),all al of which was emergencyof which was emergency spending. Although amounts were not designated mandatory, they are spending. Although amounts were not designated mandatory, they are
grouped here for comparison to accounts in the annual appropriations. See detail ingrouped here for comparison to accounts in the annual appropriations. See detail in Table 3.
b. The request is based on current law and does not reflect the Administration’s b. The request is based on current law and does not reflect the Administration’s various legislativevarious legislative proposals.proposals.
c. Excludes amounts that are provided separatelyc. Excludes amounts that are provided separately in General Provisionsin General Provisions (see (see Table B-3).
. Congressional Research Service 2 link to page 30 link to page 30 link to page 31 link to page 35 link to page 39 Agriculture and Related Agencies: FY2021 Appropriations d. Changes in Mandatory Program Spending (CHIMPS) revised. Changes in Mandatory Program Spending (CHIMPS) revise mandatory programsmandatory programs via appropriations via appropriations (Table
B-1). Rescissions. Rescissions are permanent are permanent cancellationscancel ations of previous authorizations ( of previous authorizations (seesee Table B-2).
e. “Scorekeeping e. “Scorekeeping adjustments” are part of the official accounting for budget adjustments” are part of the official accounting for budget enforcement enforcement (Table B-4).
Figure 2(Table B-4).
Congressional Research Service
2
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Agriculture and Related Agencies: FY2021 Appropriations
Figure 1. Timeline of Action on Agriculture Appropriations, FY2011-FY2021
Source: CRS. For specific dates and links CRS. For specific dates and links to bil s,to bil s, see see Appendix D. Notes: For FY2021, the Senate Committee released a draft subcommittee bil on November 10, 2020.
Notes: Blue shading shows the beginning of each fiscal year.Blue shading shows the beginning of each fiscal year. Yellow Yel ow shading is the current appropriations cycle. shading is the current appropriations cycle.
Other CRS Resources for Agricultural Appropriations
Agencies and selected programs. Amounts for agencies are shown in Table 3.
CRS Report R46255, International Food Assistance: FY2020 Appropriations
CRS Report R46011, FY2020 Appropriations for Agricultural Conservation
CRS Insight IN11168, The CCC Anomaly in an FY2020 Continuing Resolution
CRS In Focus IF11245, FY2019 Supplemental Appropriations for Agriculture
CRS Report R44576, The Food and Drug Administration (FDA) Budget: Fact Sheet
CRS In Focus IF10953, Agriculture Appropriations: Animal and Plant Health
COVID-19 supplemental appropriations.
CRS In Focus IF11491, Supplemental Appropriations for Agriculture and Related Agencies Due to COVID-19
CRS Report R46347, COVID-19, U.S. Agriculture, and USDA’s Coronavirus Food Assistance Program (CFAP)
CRS Report R46348, COVID-19: Supply Chain Disruptions in the U.S. Fruit and Vegetable Industry: In Brief
CRS Insight IN11366, COVID-19 Disrupts U.S. Meat Supply; Producer Prices Tumble
CRS Insight IN11250, USDA Domestic Food Assistance Programs’ Response to COVID-19: P.L. 116-127, P.L. 116-
136, and Related Efforts
CRS In Focus IF11575, COVID-19 and Global Food Security: Issues for Congress
CRS Insight IN11415, COVID-19 and USDA Farm Loan Flexibilities
CRS Insight IN11391, USDA Rural Development and COVID-19: Supplemental Funding and Agency Actions
CRS In Focus IF11491, Supplemental Appropriations for Agriculture and Related Agencies Due to COVID-19 CRS Insight IN11250, USDA Domestic Food Assistance Programs’ Response to COVID-19: P.L. 116-127, P.L. 116-136, and Related Efforts CRS Report R46488, USDA Domestic Food Assistance Programs: FY2020 Appropriations CRS Report R46255, International Food Assistance: FY2020 Appropriations CRS Report R46011, FY2020 Appropriations for Agricultural Conservation CRS In Focus IF11452, Staffing Trends in the USDA Farm Production and Conservation (FPAC) Mission Area CRS Insight IN11168, The CCC Anomaly in an FY2020 Continuing Resolution CRS Report R44576, The Food and Drug Administration (FDA) Budget: Fact Sheet CRS Report R45413, FY2018 and FY2019 Agriculture Appropriations: Federal Food Safety Activities CRS In Focus IF10953, Agriculture Appropriations: Animal and Plant Health Congressional Research Service Congressional Research Service
3 3
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Scope of Agriculture Appropriations
The Agriculture appropriations The Agriculture appropriationsbill—formally bil —formal y known as the Agriculture, Rural Development, known as the Agriculture, Rural Development,
Food and Drug Administration, and Related Agencies Appropriations Act—funds Food and Drug Administration, and Related Agencies Appropriations Act—fundsall al of the U.S. of the U.S.
Department of Agriculture (USDA), excluding the U.S. Forest Service.2 It also funds the Food Department of Agriculture (USDA), excluding the U.S. Forest Service.2 It also funds the Food
and Drug Administration (FDA) and Drug Administration (FDA)in the Department of Health and Human Services (HHS) and, in and, in
even-numbered fiscal years, CFTC. even-numbered fiscal years, CFTC.
Jurisdiction is with the House and Senate Committees on Appropriations and their Subcommittees Jurisdiction is with the House and Senate Committees on Appropriations and their Subcommittees
on Agriculture, Rural Development, Food and Drug Administration, and Related Agencies. The on Agriculture, Rural Development, Food and Drug Administration, and Related Agencies. The
bill bil includes mandatory and discretionary spending, but the discretionary amounts are the primary includes mandatory and discretionary spending, but the discretionary amounts are the primary
focusfocus (Figure2)3). Some programs are not in the authorizing jurisdiction of the House or Senate . Some programs are not in the authorizing jurisdiction of the House or Senate
Agriculture Committees, such as FDA; Special Supplemental Nutrition Program for Women, Agriculture Committees, such as FDA; Special Supplemental Nutrition Program for Women,
Infants, and Children (WIC); or child nutrition (checkered regions iInfants, and Children (WIC); or child nutrition (checkered regions in Figure23).
The federal budget process treats discretionary and mandatory spending differently:3 The federal budget process treats discretionary and mandatory spending differently:3
Discretionary spending is controlled by annual appropriations acts and receives is controlled by annual appropriations acts and receives
most of the attention during the appropriations process. The annual budget most of the attention during the appropriations process. The annual budget
resolution4 process sets spending limits for discretionary appropriations. Agency resolution4 process sets spending limits for discretionary appropriations. Agency
operations (salaries and expenses) and many grant programs are discretionary. operations (salaries and expenses) and many grant programs are discretionary.
Mandatory spending55 isis carried in the appropriation and carried in the appropriation andusuallyusual y advanced advanced
unchanged, since it is controlled by budget rules during the authorization unchanged, since it is controlled by budget rules during the authorization
process.6 Spending for so-process.6 Spending for so-calledcal ed entitlement programs is determined in laws such entitlement programs is determined in laws such
as the 2018 farm as the 2018 farmbill7bil 7 and 2010 child nutrition reauthorization.8 and 2010 child nutrition reauthorization.8
In the FY2020 appropriation (P.L. 116-94), the discretionary amount is 15% ($23 In the FY2020 appropriation (P.L. 116-94), the discretionary amount is 15% ($23billionbil ion) of the ) of the
$153 $153billion bil ion total. Mandatory spending carried in the act comprised $129 total. Mandatory spending carried in the act comprised $129 billionbil ion, about 85% of , about 85% of
the total, of which about $106 the total, of which about $106billionbil ion is attributable to programs in the 2018 farm is attributable to programs in the 2018 farm billbil . .
Within the discretionary total, the largest spending items are WIC, agricultural research, rural Within the discretionary total, the largest spending items are WIC, agricultural research, rural
development, FDA, foreign food aid and trade, farm assistance loans and salaries, food safety development, FDA, foreign food aid and trade, farm assistance loans and salaries, food safety
inspection, animal and plant health programs, and technical assistance for conservation program.inspection, animal and plant health programs, and technical assistance for conservation program.
The main mandatory spending items are the Supplemental Nutrition Assistance Program (SNAP) The main mandatory spending items are the Supplemental Nutrition Assistance Program (SNAP)
and other food and nutrition act programs, child nutrition (school lunch and related programs), and other food and nutrition act programs, child nutrition (school lunch and related programs),
crop insurance, and farm commodity and conservation programs that are funded through USDA’s crop insurance, and farm commodity and conservation programs that are funded through USDA’s
Commodity Credit Corporation (CCC). SNAP is referred to as an “appropriated entitlement” and Commodity Credit Corporation (CCC). SNAP is referred to as an “appropriated entitlement” and
requires an annual appropriation.9 Amounts for the nutrition program are based on projected requires an annual appropriation.9 Amounts for the nutrition program are based on projected
spending needs. In contrast, the CCC appropriations reimburse spending from a line of credit.10 spending needs. In contrast, the CCC appropriations reimburse spending from a line of credit.10
2 Although the Forest Service is part2 Although the Forest Service is part of USDA,of USDA, its appropriations jurisdiction is in the Interior Appropriations Act. its appropriations jurisdiction is in the Interior Appropriations Act.
3 See3 See CRS CRS In FocusIn Focus IF11032, IF11032, Budgetary Decisionmaking in Congress; and CRS; and CRS Report R44582, Report R44582, Overview of Funding
MechanismsMechanism s in the Federal Budget Process, and Selected Examples.
4 See CRS Exam ples. 4 See CRS Report R42388, Report R42388, The Congressional Appropriations Process: An Introduction . .
5 Mandatory spending creates funding5 Mandatory spending creates funding stability and consistency compared to annual discretionary appropriations. In stability and consistency compared to annual discretionary appropriations. In
agriculture, it originated with farm commodity programs that had uncertain outlays due to weather and markets. agriculture, it originated with farm commodity programs that had uncertain outlays due to weather and markets.
6 See 6 See CRS CRS Report 98-560, Report 98-560, Baselines and Scorekeeping in the Federal Budget Process. .
7 P.L. 115-334 (Agricultural Act of 2018). See CRS7 P.L. 115-334 (Agricultural Act of 2018). See CRS Report R45425, Report R45425, Budget Issues That Shaped the 2018 Farm Bill. .
8 P.L. 111-296 (Healthy, Hunger-Free Kids Act of 2010). See CRS8 P.L. 111-296 (Healthy, Hunger-Free Kids Act of 2010). See CRS In FocusIn Focus IF10266, IF10266, Child Nutrition Reauthorization
(CNR): An Overview. .
9 See 9 See CRS CRS Report RS20129, Report RS20129, Entitlements and Appropriated Entitlements in the Federal Budget Process. .
10 See10 See CRS CRS Report R44606, Report R44606, The Commodity Credit Corporation: In Brief. .
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Figure23. Scope of Agriculture and Related Agencies Appropriations
Budget authority in Budget authority inbillions of dollarsbil ions of dol ars
Source: CRS. CRS.
Notes: SNAP = Supplemental Nutrition Assistance Program; SNAP = Supplemental Nutrition Assistance Program; CCC = CommodityCCC = Commodity Credit Corporation; FCIC = Credit Corporation; FCIC =
FederalFederal Crop Insurance Corporation; Section 32 = Funds for Strengthening Markets, Income and Supply; WIC = Crop Insurance Corporation; Section 32 = Funds for Strengthening Markets, Income and Supply; WIC =
Special Supplemental Nutrition Program for Women,Special Supplemental Nutrition Program for Women, Infants, and Children; CSFP = CommodityInfants, and Children; CSFP = Commodity Supplemental Supplemental
Food Program; FDAFood Program; FDA = Food and Drug Administration; FSA = Farm Service= Food and Drug Administration; FSA = Farm Service Agency, incl. Farm Production and Agency, incl. Farm Production and
Conservation Business Center; RMA = Risk Management Agency; FSIS = Food Safety and Inspection Service; Conservation Business Center; RMA = Risk Management Agency; FSIS = Food Safety and Inspection Service;
APHIS = AnimalAPHIS = Animal and Plant Health Inspection Service; NRCS = Natural Resources Conservation Service.and Plant Health Inspection Service; NRCS = Natural Resources Conservation Service. Does Does
not show agencies under $0.5 bil ion.not show agencies under $0.5 bil ion. Spending in the GeneralSpending in the General Provisions Provisions are presented with the agencies. are presented with the agencies.
Key Budget Terms
Budget authority is the main purpose of an appropriations act or a law authorizing mandatory spending. It is the main purpose of an appropriations act or a law authorizing mandatory spending. It
provides the legal basis from which to obligate funds. It expiresprovides the legal basis from which to obligate funds. It expires at the end of a period, at the end of a period, usuallyusual y after one year unless after one year unless
specified otherwisespecified otherwise (e.g., two years or indefinite). Most funding amounts in this report are budget authority. (e.g., two years or indefinite). Most funding amounts in this report are budget authority.
Obligations are contractual agreements between a governmentare contractual agreements between a government agency and its clients or employees.agency and its clients or employees. These occur These occur
when an agency agrees to spend money from its budget authority. The Antideficiency Act prohibits agencies from when an agency agrees to spend money from its budget authority. The Antideficiency Act prohibits agencies from
obligating moreobligating more budget authority than is provided in law, such as during a government shutdown. budget authority than is provided in law, such as during a government shutdown.
Outlays are the payments (cash disbursements) that satisfy a valid obligation.are the payments (cash disbursements) that satisfy a valid obligation. Timing of outlays may differ from Timing of outlays may differ from
budget authority or obligations because payments from an agency may not occur until servicesbudget authority or obligations because payments from an agency may not occur until services are fulfil ed,are fulfil ed, goods goods
are delivered,are delivered, or construction is completed,or construction is completed, even though an obligation occurred. even though an obligation occurred.
Program level representsrepresents the sum of the activities undertaken by an agency. A program levelthe sum of the activities undertaken by an agency. A program level may be higher than may be higher than
a budget authority if the program (1) receivesa budget authority if the program (1) receives user fees, (2) includes , (2) includes loans that are leveragedthat are leveraged by an expectation by an expectation
of repayment (loan authority may exceed budget authority), or (3) receivesof repayment (loan authority may exceed budget authority), or (3) receives transfers from other agencies. from other agencies.
Rescissions are actions that reduce budget authority after enactment. They are actions that reduce budget authority after enactment. Theygenerally general y score budgetary savings. score budgetary savings.
CHIMPS (Changes in Mandatory Program Spending) are adjustments via an appropriations act that can change (Changes in Mandatory Program Spending) are adjustments via an appropriations act that can change
available funding for mandatory programs.available funding for mandatory programs. CHIMPS CHIMPS usuallyusual y change spending for one year and may score either change spending for one year and may score either as as
an increase or decrease to outlays. They do not change the underlying authority of the program in law.an increase or decrease to outlays. They do not change the underlying authority of the program in law.
For moreFor more background, see CRS Report 98-721, background, see CRS Report 98-721, Introduction to the Federal Budget Process. .
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Recent Trends in Agriculture Appropriations
Discretionary Agriculture appropriations reached a 10-year low in FY2013 after decreasing from Discretionary Agriculture appropriations reached a 10-year low in FY2013 after decreasing from
a high ina high in FY2010. Since FY2013, they have FY2010. Since FY2013, they have graduallygradual y increased 19% over seven years. Changes increased 19% over seven years. Changes
within titles have within titles havegenerallygeneral y been proportionate to changes in the been proportionate to changes in the overall bill, overal bil , though some areas though some areas
have sustained relative increases, such as FDA (related agencies) and rural development. have sustained relative increases, such as FDA (related agencies) and rural development.
The stacked bars i The stacked bars in Figure3 4 represent the discretionary authorization for each appropriations represent the discretionary authorization for each appropriations
title. The total of the positive stacked bars is the budget authority in Titles I-VI. In FY2018, title. The total of the positive stacked bars is the budget authority in Titles I-VI. In FY2018,
USDA reorganization affected the placement of some programs between Titles I and II of the USDA reorganization affected the placement of some programs between Titles I and II of thebill
bil (most noticeably the Farm Service Agency). In most years, the cumulative appropriation for the (most noticeably the Farm Service Agency). In most years, the cumulative appropriation for the
agencies is higher than the official discretionary total in the spending agencies is higher than the official discretionary total in the spendingallocational ocation (the blue line) (the blue line)
because of the budgetary offset from negative amounts in Title VII (general provisions) and other because of the budgetary offset from negative amounts in Title VII (general provisions) and other
negative scorekeeping adjustments. These negative offsets are mostly due to rescissions of prior-negative scorekeeping adjustments. These negative offsets are mostly due to rescissions of prior-
year unobligated funds and, before FY2018, limits placed on mandatory programs. year unobligated funds and, before FY2018, limits placed on mandatory programs.
Historical trends may be tempered by inflation adjustments, as shown in the dotted line. In Historical trends may be tempered by inflation adjustments, as shown in the dotted line. In
FY2020 the inflation-adjusted total is 0.2% less than it was in FY2011 and 2.8% less than it was FY2020 the inflation-adjusted total is 0.2% less than it was in FY2011 and 2.8% less than it was
in FY2018. in FY2018.
Figure34. Discretionary Agriculture Appropriations, by Title, FY2011-FY2021
Source: CRS. CRS.
Note: For FY2021, Adm.For FY2021, Adm. is the Trump Administration’sis the Trump Administration’s request, request; House is House- House is House-reported. For comparability,
passed H.R. 7608, Division B; and Sen. is the Senate Appropriations Committee draft. For comparability, includes CFTC in Related Agenciesincludes CFTC in Related Agencies in all in al columns regardlesscolumns regardless of jurisdiction.of jurisdiction. The inflation-adjusted line was The inflation-adjusted line was
calculated using the grosscalculated using the gross domestic product price deflator. Amounts printed domestic product price deflator. Amounts printed diagonallydiagonal y indicate the solid line, indicate the solid line,
which is the subcommitteewhich is the subcommittee allocation al ocation. .
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Budget Caps and Subcommittee Allocations Budget enforcement has procedural and statutory elements. The procedural elements relate to a budget resolution and are enforced with points of order. The statutory elements impose
discretionary spending limits and are enforced with budget caps and sequestration.11
Budget Resolution Typical y, each chamber’s Appropriations Committee receives a top-line limit on discretionary budget authority, referred to as a “302(a)” al ocation, from the Budget Committee via an annual budget resolution. The Appropriations Committees then in turn subdivide the al ocation among
their subcommittees, referred to as the “302(b)” al ocations.12 For FY2021, the House and Senate Budget Committees have not reported a budget resolution.
Budget Caps The Budget Control Act of 2011 (BCA; P.L. 112-25) set discretionary budget caps from FY2013
through FY2021 as a way of reducing federal spending.13 If federal spending exceeds the statutory budget caps, then automatic spending cuts are triggered. Sequestration is the across-the-board backstop to achieve budget reductions by permanently canceling budget authority when
spending exceeds budget caps (2 U.S.C. §901(c)).14
FY2021 is the last year with budget caps under the BCA. Since 2011, Bipartisan Budget Acts (BBAs) in 2013, 2015, 2018, and 2019 have raised the caps to al ow more spending and avoid
sequestration on discretionary accounts (Figure 5).15
Despite the BBA agreements that have raised discretionary spending caps to avoid sequestration (with the exception of FY2013), sequestration stil impacts mandatory spending accounts. Sequestration on mandatory accounts began in FY2013 and continues to the present. Congress
has amended the BCA five times to extend sequestration on mandatory spending accounts, usual y as an offset to raise the discretionary spending caps. The original sunset of sequestration on mandatory accounts was to be FY2021; it is now scheduled to continue through FY2029. Sequestration has reduced mandatory spending by about 6% per year, amounting to about $1.5
bil ion of reductions annual y from agriculture accounts in recent years (see Appendix C).
For discretionary spending, the BBA of 2019 (P.L. 116-37) raised the cap applicable to FY2021 nondefense discretionary spending to $627 bil ion. Agriculture appropriations are part of the nondefense spending category. The BBA provides language to execute (or “deem”) the caps for
the appropriations process without a budget resolution.16
TheFY2021 budget cap of $627 bil ion for nondefense spending is about 1% greater than the cap that was used to write the FY2020 appropriations. This cap is to be shared among many
appropriations subcommittees when spending al ocations are made.
11 CRS Report R42388, The Congressional Appropriations Process: An Introduction . 12 References to 302(a) and 302(b) are to sections of the Congressional Budget Act of 1974. 13 CRS Report R44874, The Budget Control Act: Frequently Asked Questions. 14 CRS Report R42972, Sequestration as a Budget Enforcement Process: Frequently Asked Questions. 15 CRS Insight IN11090, Increasing the BCA Spending Limits: Characteristics of Previously Enacted Legislation. 16 CRS Insight IN11148, The Bipartisan Budget Act of 2019: Changes to the BCA and Debt Limit.
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Figure 5. BCA Discretionary Limits, FY2014-FY2021
Budget authority in bil ions of nominal dol ars
Source: CRS Insight IN11148, The Bipartisan Budget Act of 2019: Changes to the BCA and Debt Limit.
Discretionary Spending Allocations On July 9, 2020, the House Appropriations Committee reported its 302(b) subcommittee al ocations (H.Rept. 116-143). The discretionary al ocation for Agriculture is $23.98 bil ion, an
increase of 2% above the FY2020 level.
On November 10, 2020, the Senate Appropriations Committee reported its 302(b) subcommittee al ocations on the committee website with the draft bills. The discretionary al ocation for
Agriculture is $23.33 bil ion, an increase of nearly 1% above FY2020. link to page 11 Agriculture and Related Agencies: FY2021 Appropriations
Action on FY2021 Appropriations
Administration’s Budget Request
The Trump Administration released its FY2021 budget proposal to Congress on February 10, The Trump Administration released its FY2021 budget proposal to Congress on February 10,
2020.2020.1117 USDA concurrently released its more detailed budget summary and justification, USDA concurrently released its more detailed budget summary and justification,1218 as did as did
the FDA,the FDA,1319 the CFTC, the CFTC,1420 and the Farm Credit Administration. and the Farm Credit Administration.1521 The Administration also The Administration also
highlighted separately some of its proposed reductions and eliminations.highlighted separately some of its proposed reductions and eliminations.16
For accounts in the jurisdiction of the Agriculture appropriations bill, the 22
17 OMB, FY2021 Budget of the U.S. Government, Appendix. 18 USDA, FY2021 USDA Budget Summary; and USDA, FY2021 Budget Explanatory Notes for Committee on Appropriations.
19 FDA, FY2021 Justification of Estimates for Appropriations Committees. 20 CFT C, FY2021 President’s Budget Request. 21 Farm Credit Administration, FY2021 Proposed Budget and Performance Plan. 22 OMB, FY2021 Budget of the U.S. Government, Major Savings and Reforms.
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For accounts in the jurisdiction of the House Agriculture Appropriations Subcommittee, the Administration’s budget Administration’s budget
requests $19.9 requests $19.9billionbil ion, a $3.6 , a $3.6 billion bil ion reduction from FY2020 (-15%;reduction from FY2020 (-15%;
Table 3, Figure 3).17 This is
compiled based on the jurisdiction of the House Agriculture subcommittee, including the CFTC.4).23
The primary changes in the Administration’s request compared The primary changes in the Administration’s request comparedtowith what Congress enacted in what Congress enacted in
FY2020 include FY2020 include proposed reductions to the following: reductions to the following:
Foreign assistance (-$1.97 billion, -90%), mostly by eliminating funding for , mostly by eliminating funding for
Food for Peace Title II grants (-$1.73 Food for Peace Title II grants (-$1.73billionbil ion) and the McGovern-Dole ) and the McGovern-Dole
International Food for Education (-$220 International Food for Education (-$220million).18mil ion).24
Domestic nutrition assistance programs (-$1.06 billion), mostly from , mostly from
reductions to the WIC program (-$549 reductions to the WIC program (-$549millionmil ion, -9%) and the commodity , -9%) and the commodity
assistance program (-$264 assistance program (-$264millionmil ion, -77%). In addition, the Administration , -77%). In addition, the Administration
proposes rescinding more from unspent WIC balances than was done by the proposes rescinding more from unspent WIC balances than was done by the
enacted FY2020 General Provisions (-$200 enacted FY2020 General Provisions (-$200millionmil ion), which contributes to the ), which contributes to the
overall overal budget effect of the request. budget effect of the request.
Farm Production and Conservation mission area (-$200 million, -7%), ,
mostly from defunding watershed programs that are mostly from defunding watershed programs that aretypicallytypical y not requested by not requested by
the Administration. the Administration.
Agricultural research agencies (-$151 million net, -4%), including from the , including from the
Agricultural Research Service (ARS) facilities (-$143 Agricultural Research Service (ARS) facilities (-$143million, mil ion, -74%); ARS -74%); ARS
salaries and expenses (-$46 salaries and expenses (-$46millionmil ion, -3%); the Economic Research Service (-$23 , -3%); the Economic Research Service (-$23
million, mil ion, -27%); and formula research grants (-$53 -27%); and formula research grants (-$53 millionmil ion). The request would ). The request would
increase competitive research (+$175 increase competitive research (+$175millionmil ion) and create funding for the Office ) and create funding for the Office
of Chief Scientist (+$6 of Chief Scientist (+$6million).19mil ion).25
Rural development (-$130 million), from reductions to rural business , from reductions to rural business
development programs (-$95 development programs (-$95millionmil ion, -90%); rural housing programs (-$92 mil ion, -5%); rural water and the regular rural broadband and distance learning/telemedicine accounts (-$58 mil ion, -8%); and a net reduction to the
rural broadband ReConnect program (-$50 mil ion net,26 -17%). The Administration would increase rural development salaries and expenses (+$64 mil ion net) and create a Higher Blends Infrastructure Initiative (+$100 mil ion).
Regulatory agencies (-$50 million), mostly by reducing the Agricultural
Marketing Service (-$40 mil ion, -21%) and the Animal and Plant Health Inspection Service (-$10 mil ion, -1%).
Commodity Futures Trading Commission (-$89 million, -28%, to be replaced
by new user fees).
Eliminating other appropriations in General Provisions (-$140 mil ion).
These reductions are offset by proposed increases to the following:
23 T his represents the Administration’s request based on current law and does not reflect the Administration’s various legislative proposals that would change mandatory programs and any related changes to appropriations.
24 A similar reduction is discussed in CRS Report R46255, International Food Assistance: FY2020 Appropriations. 25 CRS Report R46341, Federal Research and Development (R&D) Funding: FY2021 . 26 T he FY2021 budget request would move funding for the Rural e-Connectivity Pilot Program (also known as ReConnect) into the regular Rural Utilities Service program account (+$250 million) while eliminating funding that was in the General Provisions title of the FY2020 appropriation ( -$300 million). T his is separate from the supplemental $100 million for ReConnect that was in the CARES Act coronavirus appropriation.
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USDA administration (+$142 million, +30%), mostly by increasing the Office
of Chief Information Officer (+$76 mil ion, +155%); buildings and facilities (+$25 mil ion, +19%); the Office of Budget and Program Analysis (+$11 mil ion, +117%); and Departmental Administration (+$6 mil ion, +27%). The request would create an Office of Safety, Security and Protection (+$25 mil ion) and an Office of Information Affairs (+$2.5 mil ion). It would reduce the Office of Public Partnership and Engagement (-$4 mil ion, -68%).
Food Safety Inspection Service (+$38 million, +4%). Food and Drug Administration (+49 mil ion, +2%).
House Action In February and March 2020, before the COVID-19 pandemic paused development of the regular appropriations bil s, the House Agriculture Appropriations Subcommittee held hearings on the request for USDA overal , the FDA and FCA budget requests, and the USDA and HHS Offices of
Inspector General.27
On July 6, 2020, the House Agriculture Appropriations Subcommittee marked up a FY2021 Agriculture appropriations bil by voice vote. On July 9, the full committee reported the bil by
voice vote after adopting two amendments (H.R. 7610, H.Rept. 116-446).
On July 24, 2020, the House passed a four-bil FY2021 minibus appropriation (H.R. 7608) that contained the text of the House-reported bil as Division B, as amended. Forty-five amendments were submitted to the Rules Committee for the agriculture portion.28 The House Rules Committee
reported a modified open rule29 (H.Rept. 116-459) that made in order for floor consideration 24 of these 45 amendments.30 During floor consideration, al 24 amendments in Division B were adopted in two en bloc amendments (H.Amdt. 850 with 22 amendments in Division B, by voice vote, and H.Amdt. 851 with two amendments in Division B, by a vote of 223-194).31 Of these adopted amendments, 8 revised funding amounts with offsets, 1 increased an amount for mandatory spending without offset, 3 added policy statements, and 12 made no substantive
changes but were for the purposes of discussion.
The House-passed Agriculture appropriations bil would provide $23.97 bil ion in discretionary
appropriations, an increase of $488 mil ion (+2%) over the regular annual FY2020 appropriation. General y speaking, the House-reported bil does not include most of the reductions proposed by
the Administration and is $4.07 bil ion greater than the Administration’s request.
Table 3 provides details of the House-passed bil at the agency level; Table 2 summarizes it by titles of the bil . The primary changes in the bil that comprise the $488 mil ion increase,
compared to the annual enacted FY2020 appropriation, include increases to the following:
27 Videos of the hearings are available at the House Agriculture Appropriations Subcommittee website. 28 T he 45 amendments submitted for Division B, including links to the text, are posted at https://rules.house.gov/bill/116/hr-7608. 29 Rules about floor consideration are discussed in CRS Report R43424, Considering Legislation on the House Floor: Com m on Practices in Brief. A modified open rule makes in order a predetermined number of specific amendments.
30 A crosswalk of the amendment numbers from those submitted (footnote 28) to those made in order for floor consideration (H.Rept. 116-459) is at https://rules.house.gov/sites/democrats.rules.house.gov/files/Rule_HR7608.pdf.
31 An amendment tracker for the minibus is at https://appropriations.house.gov/hr-7608-archived-amendment-tracker-state-foreign-operations-agriculture-interior-environment-and.
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Rural e-Connectivity Pilot Program (also known as ReConnect; +615 mil ion,
+205%), to expand rural broadband.32 This is in the General Provisions title.
Foreign assistance (+$72 million, +3%), to increase Food for Peace Title II
grants and McGovern-Dole Food for Education.
USDA food safety and regulatory programs (+$63 million, +3%), mostly by
increasing the Food Safety Inspection Service by $34 mil ion and the Animal and Plant Health Inspection Service by $27 mil ion.
Food and Drug Administration (+$47 million, +1%). Farm Production and Conservation (FPAC) mission area (+$17 million,
+1%), mostly from increasing the FPAC Business Center by $28 mil ion and Conservation Operations by $4 mil ion and reducing two watershed programs.
Rural Development (+$8 million, +0.3%), a net increase mostly from
increasing program administration (+$64 mil ion) and reducing rural utilities (-$25 mil ion), rural housing (-$24 mil ion), and rural businesses (-$7 mil ion).
Changes from FY2020 in the House-passed bil also include reductions to the following:
Domestic nutrition assistance programs (-$183 million, -3%), mostly from the
WIC program, although the Commodity Assistance Program would increase.
Agricultural research (-$81 mil ion, -3%), a net reduction comprised mostly
from reducing ARS buildings and facilities by $182 mil ion while increasing the program support for four agricultural research agencies by $101 mil ion.
Departmental administration (-$35 million, -7%). Other appropriations (-$19 million), for various miscel aneous amounts in the
General Provisions title (not including the ReConnect program above).
Commodity Futures Trading Commission (-$11 million, -3%).
Senate Action The Senate Agriculture Appropriations Subcommittee held a hearing on the USDA budget request
in March 2020.33 Neither the Agriculture subcommittee nor the Appropriations Committee has
marked up a numbered FY2021 Agriculture appropriations bil .
However, on November 10, 2020, the Senate Appropriations Committee majority released drafts
of al 12 annual appropriations bil s along with draft accompanying explanatory statements.34 The release of the draft bil s was intended to further negotiations on annual appropriations between the House and the Senate.35 Hereinafter, references to the Senate Agriculture appropriations bil refer to the Senate Appropriations Committee majority draft bil and its accompanying draft
explanatory statement.
32 See CRS In Focus IF11262, USDA’s ReConnect Broadband Pilot Program . 33 Videos of the hearings are available at the Senate Agriculture Appropriations Subcommittee website. 34 T he 12 draft bills and explanatory statements are on the committee’s website linked to the majority press release at https://www.appropriations.senate.gov/news/committee-releases-fy21-bills-in-effort-to-advance-process-produce-bipartisan-results. 35 See footnote 34. See also the statement from the Senate Appropriations Committee Vice Chair, Senator Patrick Leahy, at https://www.appropriations.senate.gov/news/minority/senate-approps-vice-chair-leahy-statement-on-the-release-of-the-fy-2021-senate-appropriations-bills-.
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The Senate draft for Agriculture appropriations would provide $23.3 bil ion in discretionary appropriations, an increase of $154 mil ion (+0.7%) over the regular annual FY2020 appropriation and $345 mil ion less than the House-passed bil (-1.5%) on a comparable basis excluding the CFTC. Like the House-passed bil , the Senate draft bil general y does not include
, -90%); rural housing programs (-$92
11 OMB, FY2021 Budget of the U.S. Government, Appendix.
12 USDA, FY2021 USDA Budget Summary; and USDA, FY2021 Budget Explanatory Notes for Committee on
Appropriations.
13 FDA, FY2021 Justification of Estimates for Appropriations Committees.
14 CFTC, FY2021 President’s Budget Request.
15 Farm Credit Administration, FY2021 Proposed Budget and Performance Plan.
16 OMB, FY2021 Budget of the U.S. Government, Major Savings and Reforms.
17 This represents the Administration’s request based on current law and does not reflect the Administration’s various
legislative proposals that would change mandatory programs and any related changes to appropriations.
18 A similar reduction is discussed in CRS Report R46255, International Food Assistance: FY2020 Appropriations.
19 CRS Report R46341, Federal Research and Development (R&D) Funding: FY2021.
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million, -5%); rural water and the regular rural broadband and distance
learning/telemedicine accounts (-$58 million, -8%); and a net reduction to the
rural broadband ReConnect program (-$50 million net,20 -17%). The
Administration would increase rural development salaries and expenses (+$64
million net) and create a new Higher Blends Infrastructure Initiative (+$100
million).
Regulatory agencies (-$50 million), mostly by reducing the Agricultural
Marketing Service (-$40 million, -21%) and the Animal and Plant Health
Inspection Service (-$10 million, -1%).
Commodity Futures Trading Commission (-$89 million, -28%, to be replaced
by new user fees).
Eliminating other appropriations that were in General Provisions (-$140
million).
These reductions are offset by increases to the following:
USDA administration (+$142 million, +30%), mostly by increasing the Office
of Chief Information Officer (+$76 million, +155%); buildings and facilities
(+$25 million, +19%); the Office of Budget and Program Analysis (+$11 million,
+117%); and Departmental Administration (+$6 million, +27%). The request
would create an Office of Safety, Security and Protection (+$25 million) and an
Office of Information Affairs (+$2.5 million). It would reduce the Office of
Public Partnership and Engagement (-$4 million, -68%).
Food Safety Inspection Service (+$38 million, +4%).
Food and Drug Administration (+49 million, +2%).
Budget Caps, Subcommittee Allocations, and Sequestration
Budget enforcement has procedural and statutory elements. The procedural elements relate to a
budget resolution and are enforced with points of order. The statutory elements impose
discretionary spending limits and are enforced with budget caps and sequestration.21
Budget Resolution
Typically, each chamber’s Appropriations Committee receives a top-line limit on discretionary
budget authority, referred to as a “302(a)” allocation, from the Budget Committee via an annual
budget resolution. The Appropriations Committees then in turn subdivide the allocation among
their subcommittees, referred to as the “302(b)” allocations.22
For FY2021, the House and Senate Budget Committees have not reported a budget resolution.
20 The FY2021 budget request would move funding for the Rural e-Connectivity Pilot Program (also known as
ReConnect) into the regular Rural Utilities Service program account (+$250 million) while eliminating funding that
was in the General Provisions title of the FY2020 appropriation (-$300 million). This is separate from the supplemental
$100 million for ReConnect that was in the CARES Act coronavirus appropriation.
21 CRS Report R42388, The Congressional Appropriations Process: An Introduction.
22 References to 302(a) and 302(b) are to sections of the Congressional Budget Act of 1974.
Congressional Research Service
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Agriculture and Related Agencies: FY2021 Appropriations
Budget Caps
The Budget Control Act of 2011 (BCA, P.L. 112-25) set discretionary budget caps from FY2013
through FY2021 as a way of reducing federal spending.23 Sequestration is an across-the-board
backstop to achieve budget reductions if spending exceeds the budget caps (2 U.S.C. §901(c)).24
Subsequent Bipartisan Budget Acts (BBAs) have avoided sequestration on discretionary
spending—with the exception of FY2013—by raising those caps four times in two-year
increments in 2013, 2015, 2018, and 2019 (Figure 4).25
Most recently, the BBA of 2019 (P.L. 116-37) raised the cap applicable to FY2021 nondefense
discretionary spending to $627 billion. Agriculture appropriations are part of the nondefense
spending category. The BBA provides language to execute (or “deem”) the caps for the
appropriations process without a budget resolution.26
The $627 billion nondefense budget cap for FY2021 is about 1% greater than the cap that was
used to write the FY2020 appropriations. This cap is to be shared among many appropriations
subcommittees when spending allocations are made.
Discretionary Spending Allocations
On July 9, 2020, the House Appropriations Committee reported its 302(b) subcommittee
allocations (H.Rept. 116-143). The discretionary allocation for Agriculture is $23.98 billion, an
increase of 2% above FY2020 levels. Subcommittee allocations have not been released in the
Senate.
Figure 4. BCA Discretionary Limits, FY2014-FY2021
Budget authority in billions of nominal dollars
Source: CRS Insight IN11148, The Bipartisan Budget Act of 2019: Changes to the BCA and Debt Limit.
23 CRS Report R44874, The Budget Control Act: Frequently Asked Questions.
24 CRS Report R42972, Sequestration as a Budget Enforcement Process: Frequently Asked Questions.
25 CRS Insight IN11090, Increasing the BCA Spending Limits: Characteristics of Previously Enacted Legislation.
26 CRS Insight IN11148, The Bipartisan Budget Act of 2019: Changes to the BCA and Debt Limit.
Congressional Research Service
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House Action
In February and March 2020, before the COVID-19 pandemic paused development of the regular
appropriations bills, the House Agriculture Appropriations Subcommittee held hearings on the
request for USDA overall, the FDA and FCA budget requests, and the USDA and HHS Offices of
Inspector General.27
On July 6, 2020, the House Agriculture Appropriations Subcommittee marked up a FY2021
Agriculture appropriations bill by voice vote. On July 9, the full committee reported the bill by
voice vote after adopting a manager’s amendment and one other amendment (H.R. 7610, H.Rept.
116-446). The House-reported bill was added as Division B of a four-bill minibus appropriation
(H.R. 7608) that is scheduled for consideration in the House.
The House-reported Agriculture appropriations bill would provide $23.97 billion in discretionary
appropriations, an increase of $489 million (+2%) over the regular annual FY2020 appropriation.
Generally speaking, the House-reported bill does not include most of the reductions proposed by most of the reductions proposed by
the Administrationthe Administration and is $4.07 billion greater than the Administration’s request. .
Table 3 provides details of the provides details of theHouse-reported billSenate draft at the agency level at the agency level; Table 2 summarizes it by summarizes it by
titles of the titles of thebillbil . The primary changes in the Senate draft, compared with the House-passed bil , that
comprise the $345 mil ion difference from the House bil include relatively less for the following:
Rural e-Connectivity Pilot Program (ReConnect; -$590 million). Rural Development (-$127 million), mostly from less for the Rural Utilities
Service (-$83 mil ion), salaries and expenses (-$54 mil ion), and the Rural Business Cooperative Service (-$13 mil ion), offset by more than the House bil for the Rural Housing Service (+$23 mil ion).
Foreign assistance (-$73 million), including less than the House bil for Food
. The primary changes in the bill that comprise the $489 million increase,
compared to the annual enacted FY2020 appropriation, include increases to the following:
Rural e-Connectivity Pilot Program (also known as ReConnect; +615 million,
+205%), to expand rural broadband.28 This provision is in the General Provisions
title of the bill.
Foreign Assistance (+$72 million, +3%), to increase Food for Peace Title II
grants and McGovern-Dole Food for Education.
Food and Drug Administration (+$41 million, +1%).
Farm Production and Conservation (FPAC) mission area (+$17 million,
+1%), including $28 million more for the FPAC Business Center, $4 million
more for Conservation Operations, and offset by $20 million less from the
Watershed and Flood Prevention program.
Changes from FY2020 in the House-reported bill also include reductions to the following:
Domestic Food Programs (-$183 million, -3%), mostly from the WIC program,
though the Commodity Assistance Program would increase by $46 million.
Rural Development (-$17 million, -1%), mostly from reductions to Rural
Utilities programs (-$50 million), Rural Housing programs (-$24 million), and
Rural Business programs (-$7 million), offset by an increase for program
administration (+$64 million).
Commodity Futures Trading Commission (-$11 million, -3%).
Agricultural programs (-$8 million, -0.1%), including a reduction of $142
million from ARS mostly from buildings and facilities, offset by increases to
several agencies including $48 million more for the National Institute of Food
and Agriculture, +$27 million for the Animal and Plant Health Inspection
27 House Agriculture Appropriations Subcommittee, hearing videos at https://appropriations.house.gov/subcommittees/
agriculture-rural-development-food-and-drug-administration-and-related-agencies-116th/congress_hearing.
28 See CRS In Focus IF11262, The ReConnect Broadband Pilot Program.
Congressional Research Service
10
Agriculture and Related Agencies: FY2021 Appropriations
Service, and +$34 million for the Food Safety Inspection Service, +$13 million
for department administration accounts.
Other appropriations (-$32 million), to various miscellaneous programs in the
General Provisions title (not including the ReConnect program mentioned
above).
Senate Action
The Senate Agriculture Appropriations Subcommittee held a hearing on the USDA budget request
in March 2020.29 Neither the Agriculture subcommittee nor the Appropriations Committee has
marked up a FY2021 Agriculture appropriations bill.
29 Senate Agriculture Appropriations Subcommittee, hearing videos at https://www.appropriations.senate.gov/
subcommittees/agriculture-rural-development-food-and-drug-administration-and-related-agencies.
Congressional Research Service
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Table 3. Agriculture and Related Agencies Appropriations, by Agency, FY2019-FY2021
Budget authority in millions of dollars
FY2019
FY2020
FY2021
Change: FY2020 to...
P.L. 116-
COVID-
Admin.
House-
Admin.
House-
Agency or major program
P.L. 116-6 94
19 Actsa
requestb
reported
Senate
Enacted
request
reported
Title I. Agricultural Programs
Departmental Administration (Table A-1)
390.4
472.8
0.8
614.7
485.8
—
—
+141.9
+13.0
Research, Education and Economics
Agricultural Research Service
1,684.5
1,607.1
—
1,418.0
1,464.9
—
—
-189.1
-142.2
National Institute of Food and Agriculture
1,471.3
1,527.4
—
1,590.8
1,575.3
—
—
+63.4
+47.9
National Agricultural Statistics Service
174.5
180.3
—
177.5
183.4
—
—
-2.8
+3.1
Economic Research Service
86.8
84.8
—
62.1
86.7
—
—
-22.6
+1.9
Under Secretary
0.8
0.8
—
6.8
6.1
—
—
+6.0
+5.3
Marketing and Regulatory Programs
Animal and Plant Health Inspection Service
1,014.3
1,045.9
55.0
1,035.6
1,073.0
—
—
-10.3
+27.1
Agricultural Marketing Service
160.3
188.2
45.0
148.4
190.1
—
—
-39.7
+2.0
Section 32 (M)
1,374.0
1,404.0
—
1,359.9
1,359.9
—
—
-44.1
-44.1
Under Secretary
0.9
0.8
—
0.9
0.8
—
—
+0.1
+0.0
Food Safety
Food Safety and Inspection Service
1,049.3
1,054.3
33.0
1,092.4
1,088.6
—
—
+38.1
+34.2
Under Secretary
0.8
0.8
—
0.8
0.8
—
—
+0.0
+0.0
Subtotal, Title I
Discretionary
6,033.9
6,163.1
133.8
6,148.0
6,155.5
—
—
-15.2
-7.6
Mandatory (M)
1,374.0
1,404.0
—
1,359.9
1,359.9
—
—
-44.1
-44.1
Subtotal
7,407.9
7,567.1
—
7,507.8
7,515.4
—
—
-59.3
-51.8
CRS-12
link to page 21 link to page 21 link to page 21 link to page 21 link to page 21 link to page 21 link to page 21 link to page 21
FY2019
FY2020
FY2021
Change: FY2020 to...
P.L. 116-
COVID-
Admin.
House-
Admin.
House-
Agency or major program
P.L. 116-6 94
19 Actsa
requestb
reported
Senate
Enacted
request
reported
Title II. Farm Production and Conservation
Farm and Commodity Programs
Business Center
216.4
203.9
—
243.6
232.2
—
—
+39.7
+28.3
Farm Service Agencyc
1,494.2
1,541.7
3.0
1,484.8
1,542.7
—
—
-56.9
+1.0
FSA Farm Loans: Loan Authorityd
7,987.7
8,431.0
—
8,906.7
8,932.2
—
—
+475.7
+501.2
Risk Management Agency
58.4
58.4
—
59.4
59.4
—
—
+1.1
+1.0
Federal Crop Insurance Corporation (M)
15,410.6
9,959.0
—
8,716.0
8,716.0
—
—
-1,243.0
-1,243.0
Commodity Credit Corporation (M)
15,410.0
26,309.0
14,000.0e
25,553.1
25,553.1
—
—
-755.9
-755.9
Conservation Programs
Conservation Operations
819.5
829.6
—
830.2
833.8
—
—
+0.6
+4.2
Watershed and Flood Prevention
150.0
175.0
—
0.0
155.0
—
—
-175.0
-20.0
Watershed Rehabilitation Program
10.0
10.0
—
0.0
12.0
—
—
-10.0
+2.0
Under Secretary
0.9
0.9
—
1.1
0.9
—
—
+0.2
+0.0
Subtotal, Title II
Discretionary
2,748.8
2,819.0
3.0
2,618.7
2,835.5
—
—
-200.3
+16.5
Mandatory (M)
30,821.1
36,268.5
14,000.0
34,269.6
34,269.6
—
—
-1,998.9
-1,998.9
Subtotal
33,569.9
39,087.5
14,003.0
36,888.3
37,105.1
—
—
-2,199.2
-1,982.4
Title III. Rural Development
Salaries and Expenses (including transfers)f
686.8
697.8
—
761.5
761.9
—
—
+63.7
+64.1
Rural Housing Service
1,606.0
1,686.7
—
1,595.0
1,662.9
—
—
-91.7
-23.8
RHS Loan Authoritydfor Peace Title II grants (-$50 mil ion) and McGovern-Dole (-$15 mil ion).
Agricultural agencies (-$37 mil ion), including less than the House bil for the
Food Safety Inspection Service (-$18 mil ion), the Animal and Plant Health
Inspection Service (-$13 mil ion), and the Farm Production and Conservation mission area (-$6 mil ion).
Food and Drug Administration (-$7 million).
The Senate draft would include more than the House-passed bil for the following:
Domestic nutrition assistance programs; +$402 million), including more for
the base amount for WIC (+$250 mil ion) and less of a rescission from prior-year WIC balances (+$250 mil ion), offset by relatively less than the House bil for the Commodity Assistance Program (-$27 mil ion).
Other appropriations (+$38 million), including more than the House bil for
various miscel aneous amounts in the General Provisions title.
Administrative accounts (+$63 million), mostly more for accounts that were
reduced in the House-passed bil as offsets for floor amendments.
Continuing Resolution In the absence of any enacted FY2021 appropriations on October 1, 2020, Congress passed a
continuing resolution (CR) to continue operations and prevent a government shutdown. The CR
provides funding until December 11, 2020 (P.L. 116-159, Division A).
In general, a CR continues the funding rates and conditions that were in the previous year’s appropriation.36 The Office of Management and Budget (OMB) may prorate funding on an annualized basis for the duration of the CR through a process known as apportionment.37 For the
first 71 days (about 19% of FY2021) through December 11, 2020, the CR
36 CRS Report R42647, Continuing Resolutions: Overview of Components and Practices. 37 For example, if a CR lasts for three months, then three-twelfths of the previous fiscal year amount may be apportioned. See OMB, “ Apportionment of the Continuing Resolution(s) for Fiscal Year 2021 ,” October 1, 2020. See also CRS Report RL34700, Interim Continuing Resolutions (CRs): Potential Im pacts on Agency Operations.
Congressional Research Service
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link to page 17 Agriculture and Related Agencies: FY2021 Appropriations
continues the terms of the FY2020 Agriculture Appropriations Act (§101) with a
proviso for rural development in the anomalies below; and
provides sufficient funding to maintain mandatory program levels, including for
nutrition programs (§111).38 This is similar to the approach taken in recent years.
Special provisions (anomalies) in a CR may adjust prior-year amounts or make specific
administrative changes. Nine anomalies apply specifical y to the Agriculture appropriation:39
Rural Water and Waste Disposal Program (§116). This provision provides the
same loan levels as in FY2020 but does not provide appropriated loan subsidies. For FY2021, the program is projected to have a negative subsidy rate, meaning that the cost of providing loans is less than estimated repayments and fees.40
Summer Food for Children Demonstrations (§117). This provision al ows
USDA to spend discretionary funds at a rate that the program is operational by May 2021. Similar provisions have been part of previous CRs and include the Summer Electronic Benefit Transfer demonstration.41
Commodity Supplemental Food Program (§118). This provision al ows the
USDA to spend discretionary funds at a rate necessary to maintain the program’s current caseload to distribute food to low-income seniors.
Farm Loan Programs (§119). This provision al ows USDA to spend
discretionary funds at a rate necessary to cover any backlog of farm ownership loan applications that were approved in FY2020 but were not able to be funded.
Livestock Mandatory Reporting Extension (§120). This provision extends the
Livestock Mandatory Reporting Act through CR, until December 11, 2020. The act has been reauthorized four times since it was enacted in 1999.
U.S. Grain Standards Act Extension (§121). This provision reauthorizes
expiring parts of the otherwise permanently authorized U.S. Grain Standards Act. It extends authority to collect fees through December 11, 2020, and reauthorizes appropriations and the cap on fees until September 30, 2021.
Extension of Hemp Pilot Program in 2014 Farm Bill (§122). This provision
extends the hemp pilot program from the 2014 farm bil until September 30, 2021. This extension al ows hemp production to continue under the pilot program instead of a new hemp program established in the 2018 farm bil .42
38 T he OMB bulletin about implementing CRs (footnote 36) identified the scope of mandatory programs that were included in Section 111 by referencing the conference report for the Balanced Budget Act of 1997 ( H.Rept. 105-217). T hese included nearly all of the mandatory agriculture programs: SNAP, child nutrition, CCC, crop insurance, Section 32, and the dairy indemnity program.
39 For more detailed descriptions, see CRS Report R46582, Overview of Continuing Appropriations for FY2021 (P.L. 116-159). 40 OMB, President’s Budget FY 2021, “Federal Credit Supplement Spreadsheets: Direct Loans: Subsidy Rates, Obligations, and Average Loan Size,” https://www.whitehouse.gov/omb/supplemental-materials.
41 For more information, see CRS In Focus IF11633, Summer Meals for Children: An Overview of Federal Aid. 42 For comparisons of the 2014 and 2018 farm bill programs, see USDA, “Comparison of 2014 Farm Bill and 2018 Farm Bill Requirements,” https://www.ams.usda.gov/sites/default/files/media/HempFarmBillComparison_022020.pdf.
Congressional Research Service
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Agriculture and Related Agencies: FY2021 Appropriations
Over-the-Counter Drug Monograph User Fee Act (§123). This provision
requires that, during the CR, over-the-counter (OTC) monograph user fees are credited to the FDA salaries and expenses account.43
Commodity Credit Corporation (§173). This provision provides the
appropriation for CCC to reimburse the Treasury for its line of credit before completion of a required audited report the end of the fiscal year. Without the anomaly, CCC may have exhausted its borrowing authority in October 2020.44
43 For additional information about regulation of OT C monograph drugs, see the section “Subtitle F—Over-the-Counter Drugs” in CRS Report R46334, Selected Health Provisions in Title III of the CARES Act (P.L. 116 -136). 44 For additional information on the CCC, see CRS Report R44606, The Commodity Credit Corporation: In Brief.
Congressional Research Service
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Table 3. Agriculture and Related Agencies Appropriations, by Agency, FY2019-FY2021
Budget authority in mil ions of dol ars
FY2019
FY2020
FY2021
Change: FY2020 to...
P.L. 116-
COVID-
Admin.
House-
Senate
House-
Senate
Agency or major program
P.L. 116-6
94
19 Actsa
requestb
passed
draft
Enacted
passed
draft
Title I. Agricultural Programs
Departmental Administration (Table A-1)
390.4
472.8
0.8
614.7
437.8
500.7
—
-35.0
+27.9
Research, Education and Economics
Agricultural Research Service
1,684.5
1,607.1
—
1,418.0
1,464.9
1,510.1
—
-142.2
-97.0
National Institute of Food and Agriculture
1,471.3
1,527.4
—
1,590.8
1,578.3
1,538.9
—
+50.9
+11.5
National Agricultural Statistics Service
174.5
180.3
—
177.5
183.4
184.4
—
+3.1
+4.1
Economic Research Service
86.8
84.8
—
62.1
86.7
85.7
—
+1.9
+0.9
Under Secretary
0.8
0.8
—
6.8
6.1
0.8
—
+5.3
+0.0
Marketing and Regulatory Programs
Animal and Plant Health Inspection Service
1,014.3
1,045.9
55.0
1,035.6
1,073.0
1,060.3
—
+27.1
+14.4
Agricultural Marketing Service
160.3
188.2
45.0
148.4
190.1
188.3
—
+2.0
+0.1
Section 32 (M)
1,374.0
1,404.0
—
1,359.9
1,359.9
1,359.9
—
-44.1
-44.1
Under Secretary
0.9
0.8
—
0.9
0.8
0.8
—
+0.0
+0.0
Food Safety
Food Safety and Inspection Service
1,049.3
1,054.3
33.0
1,092.4
1,088.6
1,070.1
—
+34.2
+15.8
Under Secretary
0.8
0.8
—
0.8
0.8
0.8
—
+0.0
+0.0
Subtotal, Title I
Discretionary
6,033.9
6,163.1
133.8
6,148.0
6,110.5
6,141.0
—
-52.6
-22.1
Mandatory (M)
1,374.0
1,404.0
—
1,359.9
1,359.9
1,359.9
—
-44.1
-44.1
Subtotal
7,407.9
7,567.1
—
7,507.8
7,470.4
7,500.9
—
-96.8
-66.3
CRS-15
link to page 24 link to page 24 link to page 24 link to page 24 link to page 24 link to page 24 link to page 24 link to page 24
FY2019
FY2020
FY2021
Change: FY2020 to...
P.L. 116-
COVID-
Admin.
House-
Senate
House-
Senate
Agency or major program
P.L. 116-6
94
19 Actsa
requestb
passed
draft
Enacted
passed
draft
Title II. Farm Production and Conservation
Farm and Commodity Programs
Business Center
216.4
203.9
—
243.6
232.2
232.5
—
+28.3
+28.6
Farm Service Agencyc
1,494.2
1,541.7
3.0
1,484.8
1,542.7
1,528.9
—
+1.0
-12.8
FSA Farm Loans: Loan Authorityd
7,987.7
8,431.0
—
8,906.7
8,932.2
9,853.2
—
+501.2
+1,422.2
Risk Management Agency
58.4
58.4
—
59.4
59.4
60.4
—
+1.0
+2.0
Federal Crop Insurance Corporation (M)
15,410.6
9,959.0
—
8,716.0
8,716.0
8,716.0
—
-1,243.0
-1,243.0
Commodity Credit Corporation (M)
15,410.0
26,309.0
14,000.0e
25,553.1
25,553.1
25,553.1
—
-755.9
-755.9
Conservation Programs
Conservation Operations
819.5
829.6
—
830.2
833.8
831.9
—
+4.2
+2.3
Watershed and Flood Prevention
150.0
175.0
—
0.0
155.0
175.0
—
-20.0
+0.0
Watershed Rehabilitation Program
10.0
10.0
—
0.0
12.0
0.0
—
+2.0
-10.0
Under Secretary
0.9
0.9
—
1.1
0.9
0.9
—
+0.0
+0.0
Subtotal, Title II
Discretionary
2,748.8
2,819.0
3.0
2,618.7
2,835.5
2,829.1
—
+16.5
+10.2
Mandatory (M)
30,821.1
36,268.5
14,000.0
34,269.6
34,269.6
34,269.6
—
-1,998.9
-1,998.9
Subtotal
33,569.9
39,087.5
14,003.0
36,888.3
37,105.1
37,098.7
—
-1,982.4
-1,988.8
Title III. Rural Development
Salaries and Expenses (including transfers)f
686.8
697.8
—
761.5
761.9
707.3
—
+64.1
+9.5
Rural Housing Service
1,606.0
1,686.7
—
1,595.0
1,662.9
1,686.0
—
-23.8
-0.7
RHS Loan Authorityd
28,293.8 28,293.8
28,646.0 28,646.0
— —
27,240.0
28,646.0
—28,346.0
— —
-1,406+0.0 .0
+0-300.0 .0
Rural Business-Cooperative Rural Business-Cooperative Service Service
98.6 98.6
105.0 105.0
20.5 20.5
110.4 110.4
98.2 98.2
—84.6
— —
+5.4
-6.8-6.8
-20.5
RBCS Loan RBCS LoanAuthoritydAuthorityd
1,026.4 1,026.4
1,088.9 1,088.9
1,000.0 1,000.0
1,500.0
1,088.9
—1,438.9
— —
+ +411.10.0
+ +0350.0 .0
CRS- CRS-1316
link to page link to page2124 link to page link to page 2124 link to page link to page 2125 link to page link to page 2125 link to page link to page 2125 link to page link to page 2124 link to page link to page 2225 link to page link to page 2225 link to page link to page 2125 link to page link to page 2125 link to page link to page 2125 link to page link to page 2125 link to page link to page 2124 link to page link to page 2225 link to page link to page 2125
FY2019
FY2020
FY2021
Change: FY2020 to...
P.L. 116-
COVID-
Admin.
House-
Admin.Senate
House-
Senate Agency or major program
P.L. 116-6
94
19 Actsa
requestb
reported
Senaterequestb
passed
draft
Enacted
request
reportedpassed
draft
Rural Utilities Rural Utilities Service Service
620. 620.2g
750. 750.3g
25.0 25.0
942.6 942.6
700725..1g
—642.5
— —
+192.3
-50.1-25.1
-107.8
RUS Loan RUS LoanAuthoritydAuthorityd
8,419.9 8,419.9
8,401.2 8,401.2
— —
7,518.3
8,401.2
—8,401.9
— —
-882.8+0.0
+0. +0.07
Under Secretar Under Secretaryh
—h
0.8 0.8
— —
1.0 1.0
0.8 0.8
—0.8
— —
+0. +0.20
+0.0 +0.0
Subtotal, Title III
3,011..7g
3,240..6g
45.5g
3,410.5
3,224.249.0g
—3,121.2
— —
+169.98.4
-16.6119.4
Subtotal, RD Loan Subtotal, RD LoanAuthoritydAuthorityd
37,740.0 37,740.0
38,136.1 38,136.1
1,000.0 1,000.0
36,258.3 36,258.3
38,136.1 38,136.1
—38,186.8
—
-1,877.7+0.0
+ +0.050.7
Title IV. Domestic Food Programs
Child Nutrition Programs (M) Child Nutrition Programs (M)
23,140.8 23,140.8
23,615.1 23,615.1
8,800.0 8,800.0
25,040.9 25,040.9
25,131.4 25,131.4
—25,111.4
— —
+1, +1,425.8516.3
+1, +1,516496.3 .3
WIC Program WIC Program
6,075.0 6,075.0
6,000.0 6,000.0
500.0 500.0
5,451.5 5,451.5
5,750.0 5,750.0
—6,000.0
— —
- -548.5
-250250.0
+0.0 .0
SNAP, Food and Nutrition Act Programs SNAP, Food and Nutrition Act Programs (M) (M)
73,476.9 73,476.9
67,886.3 67,886.3
15,910. 15,910.0i
68,281.4 68,281.4
68, 68,277.4
—
—
+395.1
+391.1
Commodity 805.9
68,322.6
—
+919.7
+436.4
Commodity Assistance Programs Assistance Programs
322.1 322.1
344.2 344.2
850.0 850.0
80.7 80.7
390.7 390.7
—362.2
— —
-263+46.5 .5
+ +46.518.0
Nutrition Programs Nutrition Programs Administration Administration
164.7 164.7
155.9 155.9
— —
155.3 155.3
156.4 156.4
—157.5
— —
-0.6
+0.5+0.5
+1.6
Under Secretary Under Secretary
0.8 0.8
0.8 0.8
— —
0.8 0.8
0.8 0.8
—0.8
— —
+0.0 +0.0
+0.0 +0.0
Subtotal, Title IV
Discretionary
6,620.3
6,566.0
1,350.0
5,700.7
6,383.3
—6,586.0
— —
-865.3
-182.7182.7
+20.0
Mandatory (M) Mandatory (M)
96,560.0 96,560.0
91,436.3 91,436.3
24,710.0 24,710.0
93,309.8
93,323.4
—
—
+1,873.5
+1,887.193,851.9
93,368.6
—
+2,415.7
+1,932.4
Subtotal Subtotal
103,180.3 103,180.3
98,002.3 98,002.3
26,060.0 26,060.0
99,010.5 99,010.5
99,706.7
—
—
+1,008.2
+1,704.4100,235.3
99,954.7
—
+2,232.9
+1,952.3
Title V. Foreign Assistance
Foreign Agricultural Foreign Agricultural Service Service
213.9 213.9
215.5 215.5
4.0 4.0
193.7 193.7
222.2 222.2
—214.6
—
+6.7
-0.9
—
-21.8
+6.7
Food for Peace Title II, and admin. expenses Food for Peace Title II, and admin. expenses
1,500. 1,500.1g
1,725.1 1,725.1
— —
0.1 0.1
1,775.1 1,775.1
—1,725.1
— —
-1,725+50.0 .0
+ +500.0 .0
McGovern-Dole McGovern-Dole Food for Education Food for Education
210.3 210.3
220.0 220.0
— —
0.0 0.0
235.0 235.0
—220.0
— —
-220+15.0 .0
+ +150.0 .0
CCC Export Loan Salaries CCC Export Loan Salaries
8.8 8.8
6.4 6.4
— —
6.4 6.4
6.4 6.4
—6.4
— —
+0.0 +0.0
+0.0 +0.0
Office of Codex Alimentarius Office of Codex Alimentarius
4.0 4.0
4.8 4.8
— —
4.8 4.8
4.8 4.8
—4.8
— —
+0.0 +0.0
+0.0 +0.0
CRS- CRS-1417
link to page link to page2124 link to page link to page 2124 link to page link to page 2225 link to page link to page 2225 link to page link to page 2225 link to page link to page 2225 link to page link to page 2730 link to page link to page 2225 link to page link to page 2831 link to page link to page 2832 link to page link to page 2225 link to page link to page 2225 link to page link to page 2225 link to page link to page 2225
FY2019
FY2020
FY2021
Change: FY2020 to...
P.L. 116-
COVID-
Admin.
House-
Admin.Senate
House-
Senate Agency or major program
P.L. 116-6
94
19 Actsa
requestb
reported
Senaterequestb
passed
draft
Enacted
request
reportedpassed
draft
Under Secretary Under Secretary
0.9 0.9
0.9 0.9
— —
0.9 0.9
0.9 0.9
—0.9
— —
+0.0 +0.0
+0.0 +0.0
Subtotal, Title V
1,938.0
2,172.7
4.0
205.9
2,244.4
—2,171.8
—
+71.7
-0.9
—
-1,966.8
+71.7
Title VI. Related Agencies
Food and Drug Administration Food and Drug Administration
3,080.5 3,080.5
3,171.5 3,171.5
163.0 163.0
3,220.4 3,220.4
3, 3,212218.3 .3
—3,211.5
— —
+ +48.946.8
+40. +40.80
Commodity Commodity Futures Trading Futures Trading CommissionjCommissionj
[268.0] [268.0]
315.0 315.0
— —
226.5 226.5
304.0 304.0
—[304.0]
— —
- -88.511.0
-11.0 -11.0
Subtotal, Title VI
[3,348.5]
3,486.5
163.0
3,446.9
3,516.3
—
—
-39.6
+29.8522.3
[3,515.5]
—
+35.8
+29.0
Title VII. General Provisions
Changes in Mandatory Programs, CHIMPSkCHIMPSk
a. Conservation programs a. Conservation programs
[-60.2 [-60.2]l
-60.2 -60.2
— —
-60.2 -60.2
-60.2 -60.2
—-60.2
— —
+0.0 +0.0
+0.0 +0.0
b. Nutrition programs b. Nutrition programs
+5.0 +5.0
+9.0 +9.0
— —
+0.0 +0.0
+12.0 +12.0
—+9.0
— —
-9+3.0 .0
+ +30.0 .0
c. Farm Production & Conservation Bus. Ctr. c. Farm Production & Conservation Bus. Ctr.
[+60.2 [+60.2]l
+60.2 +60.2
— —
+60.2 +60.2
+60.2 +60.2
—+60.2
— —
+0.0 +0.0
+0.0 +0.0
d. Other CHIMPS and mandatory rescissions d. Other CHIMPS and mandatory rescissions
+10.0 +10.0
— —
— —
— —
— —
— —
— —
— —
— —
Subtotal, CHIMPS CHIMPS (Table B-1)
+15.0
+9.0
— —
+0.0
+12.0
—+9.0
— —
-9+3.0
+30.0
Rescissions (discretionary)m (Table B-2)
-505.0
-1,015.1
— —
-1,200.0
-1,000.0
—-809.0
— —
-184.9+15.1
+15206.1
Other appropriations (Table B-3)
a. Emergency/disaster a. Emergency/disaster programs programs
— —
535. 535.0n
— —
— —
— —
— —
— —
-535.0 -535.0
-535.0 -535.0
b. Water and Waste Water b. Water and Waste Water
75.0 75.0
— —
— —
— —
— —
— —
— —
— —
— —
c. Broadband pilo c. Broadband piloto
125.0 125.0
300.0 300.0
100.0 100.0
0. 0.0o
915.0 915.0
—325.0
— —
-300+615.0 .0
+ +61525.0 .0
d. Food for Peace d. Food for Peace
216.0 216.0
— —
— —
— —
— —
— —
— —
— —
— —
e. Coronavirus Food Assistance Program e. Coronavirus Food Assistance Program
— —
— —
12,500. 12,500.0p
— —
— —
— —
— —
— —
— —
f. Other appropriations f. Other appropriations
77.5 77.5
140.3 140.3
— —
— —
108121.4 .4
—158.9
— —
- -140.3
-31.918.9
+18.6
Subtotal, Other appropriations
493.5
975.3
12,600.0
0.0
1,023036.4
—483.9
—
+61.1
-491.4
—
-975.3
+48.1
Subtotal, Title VII
3.5
-30.8
12,600.0
-1,200.0
3548.4
—-316.1
— —
-1,169+79.2
+66.2-285.4
CRS- CRS-1518
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FY2019
FY2020
FY2021
Change: FY2020 to...
P.L. 116-
COVID-
Admin.
House-
Admin.Senate
House-
Senate Agency or major program
P.L. 116-6
94
19 Actsa
requestb
reported
Senaterequestb
passed
draft
Enacted
request
reportedpassed
draft
ScorekeepingAdjustmentsq (Table B-4)Adjustmentsq (
Table B-4Table B-4) Emergency declaration in this bil Emergency declaration in this bil
— —
-535. -535.0n
—a
— —
— —
— —
— —
+535.0 +535.0
+535.0 +535.0
Other scorekeeping Other scorekeeping adjustments adjustments
-404.0 -404.0
-398.0 -398.0
— —
-424.0 -424.0
-421.0 -421.0
—-421.0
— —
- -2623.0 .0
-23.0 -23.0
Subtotal, Scorekeeping adjustmentsqadjustmentsq
-404.0
-933.0
— —
-424.0
-421.0
—-421.0
— —
+509512.0
+512.0
Totals
Discretionary: Senate basis w/oCFTCjCFTCj
23,032.7 [23,169.1]
14,299.3
19,680.2 [23,669668.4]
—
—
-3,488.9
+50023,323.4
—
+499.3
+154.3
Discretionary: House basis w/CFTCjCFTCj
[23,300.7]
23,484.1
14,299.3
19,906.7
23,973972.4
—[23,627.4]
—
-3,577.4
+489+488.3
+143.3
Mandatory (M) Mandatory (M)
128,755.1 128,755.1
129,108.8 129,108.8
38,710.0 38,710.0
128,939.3 128,939.3
128,952.8
—
—
-169.6
-156.0129,481.4
128,998.1
—
+372.6
-110.7
Total: Senate basis w/o CFTC Total: Senate basis w/o CFTC
151,787.8 [152,278.0] 151,787.8 [152,278.0]
53,009.3 53,009.3
148,619.4 [ 148,619.4 [152,622.3]
—
—
-3,658.5
+344.3153,149.9]
152,321.5
—
+871.9
+43.6
Total: House basis w/ CFTC Total: House basis w/ CFTC
[152,055.8] [152,055.8]
152,593.0 152,593.0
53,009.3 53,009.3
148,845.9 148,845.9
152,926.3
—
—
-3,747.0
+333.3153,453.9 [152,625.5]
—
+860.9
+32.6
Source: CRS, using appropriations text and reports CRS, using appropriations text and reports; and unpublished CBO tables unpublished CBO tables; OMB FY2021 Budget of the U.S. Government, Appendix; and USDA FY2020 Budget
Explanatory Notes. House-passed refers to H.R. 7608, Division B. Senate draft refers to the text released by the Senate Appropriations Committee on November 10, 2020. .
Notes: Amounts are nominal discretionary budget authority in mil ions Amounts are nominal discretionary budget authority in mil ions of dol arsof dol ars unless labeled otherwise.unless labeled otherwise. “(M)” indicates that the account is mandatory authority (or “(M)” indicates that the account is mandatory authority (or
primarilyprimarily mandatory authority). Bracketedmandatory authority). Bracketed amounts are not in the official totals due to differing House-Senate jurisdictionamounts are not in the official totals due to differing House-Senate jurisdiction for CFTC but are shown for comparison. for CFTC but are shown for comparison.
a. Total from four coronavirus supplemental appropriations acts (P.L. 116-123, P.L. 116-127, P.L. 116-136, P.L. 116-139), a. Total from four coronavirus supplemental appropriations acts (P.L. 116-123, P.L. 116-127, P.L. 116-136, P.L. 116-139),all al of which was emergencyof which was emergency spending. spending.
Although amounts were not designated as mandatory, they are grouped here for comparison Although amounts were not designated as mandatory, they are grouped here for comparison to accounts that are in the annual to accounts that are in the annual appropriationsap propriations. See detail in CRS In . See detail in CRS In
Focus IF11491, Focus IF11491, Supplemental Appropriations Appropriations for Agriculture and Related Agencies Due to COVID-19. .
b. The request is based on current law and does not reflect the Administration’s b. The request is based on current law and does not reflect the Administration’s various legislativevarious legislative proposals.proposals.
c. Includes regular FSA salariesc. Includes regular FSA salaries and expenses plus transfers for farm loan programand expenses plus transfers for farm loan program salaries salaries and administrativeand administrative expenses. Alsoexpenses. Also includes farm loan programincludes farm loan program loan subsidy, loan subsidy,
State Mediation Grants, Dairy Indemnity Program (mandatory funding), and Grassroots State Mediation Grants, Dairy Indemnity Program (mandatory funding), and Grassroots Source Water Protection Program. DoesSource Water Protection Program. Does not include appropriations to the not include appropriations to the
Foreign AgriculturalForeign Agricultural Service Service for export loans and P.L.for export loans and P.L. 480 administration that are transferred to FSA. 480 administration that are transferred to FSA.
d. Loan authority is the amount of loans that can be made or guaranteed with a loan subsidy. This amount is not added in the budget authority subtotals or totals. d. Loan authority is the amount of loans that can be made or guaranteed with a loan subsidy. This amount is not added in the budget authority subtotals or totals.
e. The CARES Act (P.L. 116-136) provided $14 bil ion of reimbursemente. The CARES Act (P.L. 116-136) provided $14 bil ion of reimbursement to the CCC after a June 2020 financial statement. to the CCC after a June 2020 financial statement. AlthoughAlth ough it is not budget authority for it is not budget authority for
direct coronavirus support and not counted in CARES Act accounting, it is comparable to the CCC reimbursement direct coronavirus support and not counted in CARES Act accounting, it is comparable to the CCC reimbursement in regular in regular annualannu al appropriations. appropriations.
f. f.
Rural Development Rural Development salaries salaries and expenses include a base amount plus transfers from the three rural development agencies.and expenses include a base amount plus transfers from the three rural development agencies. Amounts presented for the agencies Amounts presented for the agencies
thereforetherefore include program funds for loans and grants. include program funds for loans and grants.
CRS-19 link to page 32 link to page 32 g. Excludes a portion of the other appropriations that are provided separately in Generalg. Excludes a portion of the other appropriations that are provided separately in General Provisions (see Provisions (see Table B-3). Table B-3).
CRS-16
link to page 28
h. The USDA-initiated reorganization in 2017 created an “Assistant to the Secretary for Rural Development”h. The USDA-initiated reorganization in 2017 created an “Assistant to the Secretary for Rural Development” as part of the Office of the Secretary rather than the as part of the Office of the Secretary rather than the
previously previously Senate-confirmed undersecretary position. The 2018 farm bil reinstated the undersecretary position, and the FY2020 appropriation Senate-confirmed undersecretary position. The 2018 farm bil reinstated the undersecretary position, and the FY2020 appropriation fundsfu nds it as such. it as such.
i. i.
In addition to the specified In addition to the specified supplemental amounts for the SNAP account in the CARES Act (supplemental amounts for the SNAP account in the CARES Act ( P.L. 116-136), the FamiliesP.L. 116-136), the Families First Coronavirus Response Act (P.L. 116-First Coronavirus Response Act (P.L. 116-
127, §1101) authorized and appropriated open-ended funding for the Pandemic Electronic Benefit Transfer (P-EBT) program.127, §1101) authorized and appropriated open-ended funding for the Pandemic Electronic Benefit Transfer (P-EBT) program. The amount displayed does not include The amount displayed does not include
the P-EBT funding.the P-EBT funding.
j. j.
Jurisdiction for the Commodity Jurisdiction for the Commodity Futures Trading CommissionFutures Trading Commission (CFTC) is in the House Agriculture(CFTC) is in the House Agriculture Appropriations SubcommitteeAppropriations Subcommittee and the Senate Financial Services and the Senate Financial Services
Appropriations Subcommittee.Appropriations Subcommittee. After After FY2008, CFTC is carried in the enacted AgricultureFY2008, CFTC is carried in the enacted Agriculture appropriations in evenappropriations in even -numbered fiscal years. It is always carried-numbered fiscal years. It is always carried in House in House
AgricultureAgriculture subcommittee subcommittee markup but never in Senate Agriculture subcommitteemarkup but never in Senate Agriculture subcommittee markup. Bracketedmarkup. Bracketed amounts are not in the Agricultureamounts are not in the Agriculture appropriations totals due appropriations totals due
to differing House-Senate jurisdictionto differing House-Senate jurisdiction for CFTC but are shown for comparison. for CFTC but are shown for comparison.
k. Includes reductions (limitations and rescissions) k. Includes reductions (limitations and rescissions) and increases to mandatory programs that are known as CHIMPS. and increases to mandatory programs that are known as CHIMPS.
l. l.
These bracketed amounts were These bracketed amounts were not in the official CBO scoring of CHIMPS. Appropriations acts in FY2018 and FY2019 transferrednot in the official CBO scoring of CHIMPS. Appropriations acts in FY2018 and FY2019 transferred mandatory conservation funding mandatory conservation funding
into the Farm Production and Conservation Businessinto the Farm Production and Conservation Business Center, but the official CBO scoring of appropriations at that timeCenter, but the official CBO scoring of appropriations at that time did not recorddid not record it as a CHIMP the way that it as a CHIMP the way that
the FY2020 scoring reflects.the FY2020 scoring reflects. For moreFor more background, seebackground, see CRS Report R46011, CRS Report R46011, FY2020 Appropriations for Agricultural Conservation. .
m. Rescissions m. Rescissions are actions that permanently reduce a budget authority subsequent to an enacted appropriation. They score are actions that permanently reduce a budget authority subsequent to an enacted appropriation. They score budgetarybudgeta ry savings. Any rescissions savings. Any rescissions from from
mandatory programs mandatory programs are included with the CHIMPS. are included with the CHIMPS.
n. Emergency appropriations in FY2020 include $535 mil ion n. Emergency appropriations in FY2020 include $535 mil ion for Ebola and $1.5 bil ion for the Wildfiresfor Ebola and $1.5 bil ion for the Wildfires and Hurricane Indemnity Program,and Hurricane Indemnity Program, which was offset with $1.5 which was offset with $1.5
bil ion in rescissions bil ion in rescissions (Table B-3).
. o. The ReConnect Broadband Pilot Program that was created in the FY2018 appropriation has been funded by separate appropriation o. The ReConnect Broadband Pilot Program that was created in the FY2018 appropriation has been funded by separate appropriation in the General Provisionsin the General Provisions title.title. In In
FY2019 and FY2020 it is augmented by a transfer from the Cushion of Credit account that is available outside the appropriations caps. For example, in FY2020, FY2019 and FY2020 it is augmented by a transfer from the Cushion of Credit account that is available outside the appropriations caps. For example, in FY2020,
appropriators direct $555 mil ionappropriators direct $555 mil ion to ReConnect fromto ReConnect from $300 mil ion$300 mil ion appropriated in Generalappropriated in General Provisions Provisions and $255 mil ionand $255 mil ion from the Cushion of Credit account. For from the Cushion of Credit account. For
FY2021, the AdministrationFY2021, the Administration requests $250 mil ionrequests $250 mil ion in the Rural Utilitiesin the Rural Utilities Service Service account rather than through General Provisions. account rather than through General Provisions.
p. Includes $9.5 bil ion specified p. Includes $9.5 bil ion specified in the CARES Act for payments to farmersin the CARES Act for payments to farmers and $3 bil ionand $3 bil ion from indefinite authority in the Familiesfrom indefinite authority in the Families First Coronavirus ReliefFirst Coronavirus Relief Act that Act that
USDA used for the Farmers USDA used for the Farmers to Familiesto Families Food Boxes Program. Food Boxes Program.
q. q. “Scorekeeping“Scorekeeping adjustments” are not necessarilyadjustments” are not necessarily appropriated itemsappropriated items and may not be shown in Appropriations Committeeand may not be shown in Appropriations Committee tables buttables but are part of the official CBO are part of the official CBO
score (accounting) of the bil . They predominantly include “negative subsidies” score (accounting) of the bil . They predominantly include “negative subsidies” in loan program accounts (mostly from receipt of fees) and adjustments for in loan program accounts (mostly from receipt of fees) and adjustments for
emergencyemergency designations in the bil . designations in the bil .
CRS- CRS-1720
Agriculture and Related Agencies: FY2021 Appropriations
Other Appropriations Issues
Policy-Related Provisions
Besides setting spending authority, appropriations acts are also a vehicle for policy-related Besides setting spending authority, appropriations acts are also a vehicle for policy-related
provisions that direct executive branch actions.provisions that direct executive branch actions.3045 These provisions, limitations, or riders may have These provisions, limitations, or riders may have
the force of law if they are included in the act’s text, but their effect is the force of law if they are included in the act’s text, but their effect isgenerallygeneral y limited to the limited to the
current fiscal year unless they amend the current fiscal year unless they amend the U.S. Code, which is rare in appropriations acts. , which is rare in appropriations acts.
Report language may also provide policy instructions. Although report language does not carry Report language may also provide policy instructions. Although report language does not carry
the force of text in an act, it often explains congressional intent, which the agencies may be the force of text in an act, it often explains congressional intent, which the agencies may be
expected to follow. expected to follow.
In the past, Congress has said that committee reports and the joint explanatory statement need to In the past, Congress has said that committee reports and the joint explanatory statement need to
be read together to capture be read together to captureall al of the congressional intent for a fiscal year. For example, the of the congressional intent for a fiscal year. For example, the
explanatory statement for the FY2020 Further Consolidated Appropriations act instructs that the explanatory statement for the FY2020 Further Consolidated Appropriations act instructs that the
earlier House and Senate reports should be read together with the conference agreement: earlier House and Senate reports should be read together with the conference agreement:
Congressional Directives. The statement is silent on provisions that were in both the
House Directives. The statement is silent on provisions that were in both the House Report (H.Rept. 116-107) and SenateReport (H.Rept. 116-107) and Senate Report (S.Rept. 116-110) thatReport (S.Rept. 116-110) that remain remain
unchanged by this agreement, except as noted in this statement. unchanged by this agreement, except as noted in this statement.
The House and Senate report language that is not changed by the statement is approved The House and Senate report language that is not changed by the statement is approved
and indicatesand indicates congressional intentions. The statement, while repeating somecongressional intentions. The statement, while repeating some report
language for emphasis, does not intend to negate the language referred to above report language for emphasis, does not intend to negate the language referred to above unless unless
expressly provided herein.expressly provided herein.31
46 COVID-19 Supplemental Appropriations in FY2020
In March and April 2020, Congress passed and the President signed four supplemental In March and April 2020, Congress passed and the President signed four supplemental
appropriations acts in response to the novel coronavirus pandemic—designated Coronavirus appropriations acts in response to the novel coronavirus pandemic—designated Coronavirus
Disease 2019, or COVID-19.Disease 2019, or COVID-19.3247 These acts in FY2020 include support for programs in the These acts in FY2020 include support for programs in the
jurisdiction of the Agriculture appropriations subcommittees. The four acts are:jurisdiction of the Agriculture appropriations subcommittees. The four acts are:
1. Coronavirus Preparedness and Response Supplemental Appropriations Act (P.L. 1. Coronavirus Preparedness and Response Supplemental Appropriations Act (P.L.
116-123, March 6, 2020); 116-123, March 6, 2020);
2. Families 2. Families First Coronavirus Response Act (P.L. 116-127, March 18, 2020); First Coronavirus Response Act (P.L. 116-127, March 18, 2020);
3. CARES Act (P.L. 116-136, March 27, 2020); and 3. CARES Act (P.L. 116-136, March 27, 2020); and
4. Paycheck Protection Program and Health Care Enhancement Act (P.L. 116-139, 4. Paycheck Protection Program and Health Care Enhancement Act (P.L. 116-139,
April 27, 2020). April 27, 2020).
These acts together specify $36 These acts together specify $36billionbil ion of appropriations to programs in the jurisdiction of the of appropriations to programs in the jurisdiction of the
Agriculture appropriations subcommittees. In addition, the second act authorized indefinite Agriculture appropriations subcommittees. In addition, the second act authorized indefinite
funding for commodity food assistance, from which the USDA has announced that it would funding for commodity food assistance, from which the USDA has announced that it would
obligate $3 obligate $3billion bil ion to date.to date.3348 The third act provided for $14 The third act provided for $14 billion bil ion of reimbursement for the CCC of reimbursement for the CCC
30 See CRS
45 See CRS Report RL30240, Report RL30240, Congressional Oversight Manual. .
3146 U.S. U.S. Congress, HouseCongress, House Committee on Appropriations, Committee on Appropriations, Further Consolidated Appropriations Act, 2020, committee , committee
print, 116th Cong., 2nd Sess.,print, 116th Cong., 2nd Sess., January 2020, 38-679 (Washington, DC: GPO, 2020), p. 305. January 2020, 38-679 (Washington, DC: GPO, 2020), p. 305.
3247 CRS CRS In FocusIn Focus IF11491, IF11491, Supplemental Appropriations for Agriculture and Related Agencies Due to COVID-19. .
33 The48 T he Farmers to Families Food Box Program, discussed Farmers to Families Food Box Program, discussed in CRSin CRS Report R46347, Report R46347, COVID-19, U.S. Agriculture, and
USDA’s Coronavirus Food Assistance Program (CFAP). .
Congressional Research Service Congressional Research Service
1821
link to page 7 link to page link to page 7 link to page17 link to page 3220 Agriculture and Related Agencies: FY2021 Appropriations
that, while not immediately that, while not immediately available available for obligation and not counted as COVID-19 relief, is for obligation and not counted as COVID-19 relief, is
comparable to the regular CCC reimbursements in annual Agriculture appropriations acts and is comparable to the regular CCC reimbursements in annual Agriculture appropriations acts and is
included in this report. included in this report.
Columns labeled Columns labeled “COVID-19 Acts” i“COVID-19 Acts” in Table 2, Table 3, and other appendix tables summarize and other appendix tables summarize
these combined $53 these combined $53billion bil ion of appropriations through the coronavirus supplemental acts. of appropriations through the coronavirus supplemental acts. All Al of of
this spending is designated as emergency spending and not counted against budget caps. Congressional Research Service 22 link to page 29 link to page 29this spending is designated as emergency spending and not counted against budget caps.
Budget Sequestration Continues on Mandatory Spending
Sequestration is a process to reduce federal spending through automatic, largely across-the-board
reductions that permanently cancel budget authority. Sequestration is triggered as a budget
enforcement mechanism when federal spending exceeds statutory budget goals.
Despite the BBA agreements that have raised discretionary spending caps to avoid sequestration
on discretionary accounts, sequestration still impacts mandatory spending. Sequestration on
mandatory accounts began in FY2013 and continues to the present. Congress has amended the
BCA five times to extend sequestration on mandatory spending accounts. The original sunset of
sequestration was to be FY2021; it is now scheduled to continue through FY2029. Sequestration
has reduced mandatory spending by about 6% per year, amounting to about $1.5 billion of
reductions annually from agriculture accounts in recent years. See Appendix C for effects.
Congressional Research Service
19
link to page 26 link to page 26
Appendix A. Appropriations in Administrative Accounts
Table A-1. USDA Departmental Administration Appropriations
Budget authority in Budget authority inmillions of dollarsmil ions of dol ars
FY2019
FY2020
FY2021
Change: FY2020 to...
P.L. 116-
COVID-
Admin.
House-
Admin.Senate
House-
Senate Agency or major program
P.L. 116-6 94
19 Acts
request
reported
Senatepassed
draft
Enacted
request
reportedpassed
draft
Office of the Secretary
Office of the Secretary Office of the Secretary
5.1 5.1
5.1 5.1
— —
5.1 5.1
5.1 5.1
—5.1
— —
+0.1 +0.1
+0.1 +0.1
Assistant to the Sec. for Rural Developmen Assistant to the Sec. for Rural Developmenta
0.8 0.8
— —
—
—
—
Office of Homeland Security Office of Homeland Security
1.5 1.5
1.5 1.5
— —
1.3 1.3
1.3 1.3
—1.3
— —
-0.2 -0.2
-0.2 -0.2
Public Partnership and Engagemen Public Partnership and Engagementb
4.7 4.7
6.2 6.2
— —
2.0 2.0
6.5 6.5
—6.2
— —
-4+0.3 .3
+0. +0.30
Assistant Secretary for Admin. Assistant Secretary for Admin.
0.9 0.9
0.9 0.9
— —
0.9 0.9
0.9 0.9
—0.9
— —
+0.0 +0.0
+0.0 +0.0
Departmental Administration Departmental Administration
22.3 22.3
21.4 21.4
— —
27.2 27.2
2219.5 .5
—21.5
— —
+5.8-1.9
+ +10.1 .1
Asst. Sec. Asst. Sec. Congressional Relations Congressional Relations
3.9 3.9
3.9 3.9
— —
3.9 3.9
3.9 3.9
—3.9
— —
+0.1 +0.1
+0.1 +0.1
Office of Communications Office of Communications
7.5 7.5
7.3 7.3
— —
7.4 7.4
7.4 7.4
—7.4
— —
+0.1 +0.1
+0.1 +0.1
Subtotal
46.6
46.1
— —
47.8
47.6
—44.6
46.3
— —
+1.7-1.5
+1.50.2
Executive Operations
Office of Chief Economist Office of Chief Economist
21.3 21.3
24.0 24.0
— —
20.9 20.9
21.3 21.3
—23.8
— —
- -3.2
-2.82.8
-0.3
Office of Hearings and Appeals Office of Hearings and Appeals
15.2 15.2
15.2 15.2
— —
15.5 15.5
15.4 15.4
—15.4
— —
+0. +0.32
+0.2 +0.2
Office of Budget, Program Analysis Office of Budget, Program Analysis
9.5 9.5
9.5 9.5
— —
20.7 20.7
9.7 9.7
—9.7
— —
+ +110.1 .1
+0.1 +0.1
Subtotal
46.0
48.8
— —
57.1
46.4
—48.9
— —
+8.3
-2.4-2.4
+0.1
Other Administration
Chief Information Officer Chief Information Officer
55.6 55.6
66.6 66.6
— —
142.8 142.8
7359.4 .4
—66.9
— —
+76-7.2 .2
+ +6.80.3
Chief Financial Officer Chief Financial Officer
6.0 6.0
6.0 6.0
— —
11.1 11.1
6.1 6.1
—6.1
— —
+ +50.1 .1
+0.1 +0.1
CRS- CRS-2023
FY2019
FY2020
FY2021
Change: FY2020 to...
P.L. 116-
COVID-
Admin.
House-
Admin.Senate
House-
Senate Agency or major program
P.L. 116-6 94
19 Acts
request
reported
Senatepassed
draft
Enacted
request
reportedpassed
draft
Assistant Secretary for Civil Rights Assistant Secretary for Civil Rights
0.9 0.9
0.9 0.9
— —
0.9 0.9
0.9 0.9
—0.9
— —
+0.0 +0.0
+0.0 +0.0
Office of Civil Rights Office of Civil Rights
24.2 24.2
24.2 24.2
— —
20.6 20.6
22.9 22.9
—20.5
— —
- -3.6
-1.31.3
-3.7
Office of Safety, Security, Office of Safety, Security, and Protection and Protection
— —
— —
— —
25.0 25.0
23.2 23.2
—25.0
— —
+ +25.0
+23.223.2
+25.0
Buildings and facilities Buildings and facilities
60.0 60.0
128.2 128.2
— —
152.8 152.8
10888.2 .2
—131.7
—
-40.0
+3.5
—
+24.6
-20.0
Hazardous materials Hazardous materials management management
3.5 3.5
4.5 4.5
— —
3.5 3.5
7.5 7.5
—4.5
— —
-1+3.0 .0
+ +30.0 .0
Office of Inspector General Office of Inspector General
98.2 98.2
98.2 98.2
— —
100.4 100.4
99100.8 .8
—99.8
— —
+2. +2.26
+1.6 +1.6
General General Counsel Counsel
45.1 45.1
45.1 45.1
0.8 0.8
45.9 45.9
4533.6 .6
—45.9
— —
+0.7-11.6
+0. +0.48
Office of Information Affairs Office of Information Affairs
— —
— —
— —
2.5 2.5
— —
— —
— —
+2.5—
— —
Office of Ethics Office of Ethics
4.1 4.1
4.1 4.1
— —
4.2 4.2
4.2 4.2
—4.2
— —
+0.1 +0.1
+0.1 +0.1
Subtotal
297.7
377.9
0.8
509.8
391.8
—
—
+131.9
+13.9346.8
405.6
—
-31.1
+27.7
Total, Departmental Administration
390.4
472.8
0.8
614.7
485.8
—
—
+141.9
+13.0437.8
500.7
—
-35.0
+27.9
Source: CRS, using appropriations text and reports CRS, using appropriations text and reports; and unpublished CBO tables unpublished CBO tables; OMB FY2021 Budget of the U.S. Government, Appendix; and USDA FY2020 Budget
Explanatory Notes. House-passed refers to H.R. 7608, Division B. Senate draft refers to the text released by the Senate Appropriations Committee on November 10, 2020. .
a. The USDA-initiated reorganization in 2017 created an “Assistant to the Secretary for Rural Development”a. The USDA-initiated reorganization in 2017 created an “Assistant to the Secretary for Rural Development” as part of the Office of the Secretary rather than the as part of the Office of the Secretary rather than the
previously previously Senate-confirmed undersecretary positionSenate-confirmed undersecretary position in the mission area. The 2018 farm bil reinstated the undersecretary position, and the FY2020 appropriation . The 2018 farm bil reinstated the undersecretary position, and the FY2020 appropriation fundsfunded it as such. it as such.
b. Formerly, b. Formerly, this was the Office of Advocacy and Outreach. this was the Office of Advocacy and Outreach.
CRS- CRS-2124
link to page link to page2730 link to page link to page 2730
Appendix B. Appropriations in General Provisions
Table B-1. General Provisions: Changes in Mandatory Program Spending (CHIMPS)
Budget authority in Budget authority inmillions of dollarsmil ions of dol ars
FY2019
FY2020
FY2021
Change: FY2020 to...
P.L. 116-
COVID-
Admin.
House-
Admin.Senate
House-
Senate CHIMPS and mandatory rescissions
P.L. 116-6
94
19 Acts
request
reported
Senatepassed
draft
Enacted
request
reportedpassed
draft
Farm bill programs
Farm Security Rural Investment Act Farm Security Rural Investment Act
conservation programs conservation programs
[-60.2 [-60.2]a
-60.2 -60.2
— —
-60.2 -60.2
-60.2 -60.2
—-60.2
— —
+0.0 +0.0
+0.0 +0.0
Farm to School Farm to School
+5.0 +5.0
+9.0 +9.0
— —
— —
+12.0 +12.0
—+9.0
— —
-9+3.0 .0
+ +30.0 .0
Subtotal, farm bill programs
+5.0
-51.2
— —
-60.2
-48.2
—-51.2
— —
-9+3.0
+30.0
Other CHIMPS
Farm Production & Conservation (FPAC) Farm Production & Conservation (FPAC)
BusinessBusiness Center Center
[+60.2 [+60.2]a
+60.2 +60.2
— —
+60.2 +60.2
+60.2 +60.2
—+60.2
— —
+0.0 +0.0
+0.0 +0.0
Food for Progress Food for Progress
+10.0 +10.0
— —
— —
— —
— —
— —
— —
— —
— —
Total CHIMPS
+15.0
+9.0
— —
+0.0
+12.0
—+9.0
— —
-9+3.0
+3.00.0
Source: CRS, using appropriations text and reports CRS, using appropriations text and reports; and unpublished CBO tables. House-passed refers to H.R. 7608, Division B. Senate draft refers to the text released by the Senate Appropriations Committee on November 10, 2020. unpublished CBO tables; OMB FY2021 Budget of the U.S. Government, Appendix; and USDA FY2020 Budget
Explanatory Notes.
Note:
a. Amounts in brackets were not in the official CBO scoring of CHIMPS. The FY2019 appropriations act transferred mandatory conservation funding into the Farm a. Amounts in brackets were not in the official CBO scoring of CHIMPS. The FY2019 appropriations act transferred mandatory conservation funding into the Farm
Production and Conservation Business Production and Conservation Business Center, but the official CBO scoring of appropriations at that time did not record it as a CHIMP the way that the FY2020 Center, but the official CBO scoring of appropriations at that time did not record it as a CHIMP the way that the FY2020
scoring reflects.scoring reflects. For moreFor more background, see CRS Report R46011, background, see CRS Report R46011, FY2020 Appropriations for Agricultural Conservation. .
CRS- CRS-22
link to page 30 25
Table B-2. General Provisions: Rescissions from Discretionary Accounts
Budget authority in Budget authority inmillions of dollarsmil ions of dol ars
FY2019
FY2020
FY2021
Change: FY2020 to...
P.L. 116-
COVID-
Admin.
House-
Admin.Senate
House-
Senate Rescissions from discretionary accounts
P.L. 116-6
94
19 Acts
request
reported
Senatepassed
draft
Enacted
request
reportedpassed
draft
Special Supplemental Nutrition Program for Special Supplemental Nutrition Program for
Women,Women, Infants, and Children Infants, and Children
-500.0 -500.0
-1,000.0 -1,000.0
— —
-1,200.0 -1,200.0
-1,000.0 -1,000.0
—-800.0
— —
-200+0.0 .0
+ +0200.0
Broadband program
—
—
—
—
—
-9.0
—
—
-9.0 .0
Electric loan refinancing Electric loan refinancing
— —
-15.1 -15.1
— —
— —
— —
— —
— —
+15.1 +15.1
+15.1 +15.1
USDA unobligated balances USDA unobligated balances
-5.0 -5.0
— —
— —
— —
— —
— —
— —
— —
— —
Total
-505.0
-1,015.1
— —
-1,200.0
-1,000.0
—-809.0
— —
-184.9+15.1
+15206.1
Source: CRS, using appropriations text and reports CRS, using appropriations text and reports; and unpublished CBO tables. House-passed refers to H.R. 7608, Division B. Senate draft refers to the text released by the Senate Appropriations Committee on November 10, 2020.
CRS-26
link to page 34 unpublished CBO tables; OMB FY2021 Budget of the U.S. Government, Appendix; and USDA FY2020 Budget
Explanatory Notes.
Table B-3. General Provisions: Other Appropriations
Budget authority in Budget authority inmillions of dollarsmil ions of dol ars
FY2019
FY2020
FY2021
Change: FY2020 to...
P.L. 116-
COVID-
Admin.
House-
Admin.Senate
House-
Senate Program
P.L. 116-6
94
19 Acts
request
reported
Senatepassed
draft
Enacted
request
reportedpassed
draft
FDA seafood safety
—
—
—
—
—
1.0
—
—
+1.0
FDA buildings and facilities FDA buildings and facilities
— —
20.0 20.0
— —
— —
— —
— —
— —
-20.0 -20.0
-20.0 -20.0
Goodfel ow facility — — — — — 58.4 — — +58.4 Coronavirus Food Assistance Program Coronavirus Food Assistance Program
— —
— —
12,500. 12,500.0a
— —
— —
— —
— —
— —
— —
Agriculture Agriculture Risk Coverage pilot Risk Coverage pilot
5.0 5.0
— —
— —
— —
— —
— —
— —
— —
— —
Dairy Innovation Dairy Innovation
— —
20.0 20.0
— —
— —
16.0 .0
—20.0
— —
- -2014.0 .0
-19+0.0 .0
Mitigation banking Mitigation banking
— —
5.0 5.0
— —
— —
— —
—5.0
— —
-5.0 -5.0
-5+0.0 .0
Conservation Reserve Conservation Reserve Program pilot Program pilot
1.0 1.0
1.0 1.0
— —
— —
— —
— —
— —
-1.0 -1.0
-1.0 -1.0
Citrus greening Citrus greening
8.5 8.5
8.5 8.5
— —
— —
8.5 8.5
—8.5
— —
-8.5+0.0
+0.0 +0.0
Protecting Animals Protecting Animals with Shelterwith Shelter Grants Grants
— —
2.0 2.0
— —
— —
3.0 3.0
—2.0
— —
-2+1.0 .0
+ +1.0
Fruit fly quarantine payments
9.00.0
Biocontrol Facility Feasibility Study
— —
— —
— —
— —
— —
—1.0
—
—
+1.0
Fruit fly quarantine payments
9.0
—
—
—
—
—
—
—
—
Geographical y
—
—
CRS-23
link to page 30 link to page 30
FY2019
FY2020
FY2021
Change: FY2020 to...
P.L. 116-
COVID-
Admin.
House-
Admin.
House-
Program
P.L. 116-6 94
19 Acts
request
reported
Senate
Enacted
request
reported
Geographically disadvantaged farmers disadvantaged farmers
2.0 2.0
2.0 2.0
— —
— —
2.0 2.0
—2.0
— —
-2+0.0 .0
+0.0 +0.0
Farming Opportunities Training and Outreach Farming Opportunities Training and Outreach
— —
5.0 5.0
— —
— —
5.0 5.0
—5.0
— —
-5+0.0 .0
+0.0 +0.0
Water Bank Water Bank
4.0 4.0
4.0 4.0
— —
— —
— —
—4.0
— —
-4.0 -4.0
-4+0.0 .0
Rural Energy Savings Program Rural Energy Savings Program
10.0 10.0
12.0 12.0
— —
— —
12.0 12.0
—10.0
— —
-12+0.0 .0
+0-2.0 .0
Agriculture Agriculture Business Innovation Center Business Innovation Center
— —
— —
— —
— —
2.0 2.0
— —
— —
—
+2.0 +2.0
— Renewable Energy Renewable Energy
— —
— —
— —
— —
10.0 10.0
— —
— —
—
+10.0 +10.0
— Maturing mortgage pilot Maturing mortgage pilot
1.0 1.0
1.0 1.0
— —
— —
— —
—2.0
— —
-1.0 -1.0
-+1.0 1.0
Rural microentrepreneur Rural microentrepreneur assistance program assistance program
3.0 3.0
— —
— —
— —
— —
— —
— —
— —
— —
Water and Waste Water Water and Waste Water
75.0 75.0
— —
— —
— —
— —
— —
— —
— —
— — CRS-27 link to page 34 link to page 34 FY2019 FY2020 FY2021 Change: FY2020 to... P.L. 116- COVID- Admin. House- Senate House- Senate Program P.L. 116-6 94 19 Acts request passed draft Enacted passed draft
Waste water pilot Waste water pilot
— —
5.0 5.0
— —
— —
— —
—5.0
— —
-5.0 -5.0
-5+0.0 .0
Broadband pilo Broadband pilotb
125.0 125.0
300.0 300.0
100.0 100.0
—b
915.0 915.0
—325.0
— —
-300+615.0 .0
+ +61525.0 .0
Distance Learning Telemedicine Distance Learning Telemedicine
16.0 16.0
— —
— —
— —
— —
— —
— —
— —
— —
Rural Hospital Technical Assistance Rural Hospital Technical Assistance
— —
1.0 1.0
— —
— —
2.0 2.0
— —
— —
-+1.0 1.0
+-1.0 1.0
Tribal Demonstration Tribal Demonstration Projects Projects
— —
3.0 3.0
— —
— —
3.0 3.0
—3.0
— —
-3+0.0 .0
+0.0 +0.0
Healthy Food Financing Initiative Healthy Food Financing Initiative
2.0 2.0
5.0 5.0
— —
— —
5.0 5.0
—5.0
— —
-5+0.0 .0
+0.0 +0.0
Healthy Fluid Milk Healthy Fluid Milk
— —
1.0 1.0
— —
— —
1.0 1.0
—1.0
— —
-1+0.0 .0
+0.0 +0.0
RISE grants RISE grants
— —
5.0 5.0
— —
— —
— —
—5.0
— —
-5.0 -5.0
-5+0.0 .0
NIFA military NIFA military veterans grants veterans grants
5.0 5.0
5.0 5.0
— —
— —
5.0 5.0
—5.0
— —
-5+0.0 .0
+0.0 +0.0
Genome Genome to Phenome to Phenome
— —
1.0 1.0
— —
— —
1.0 1.0
—1.0
— —
-1+0.0 .0
+0.0 +0.0
NIFA 1890 land grants, Centers of NIFA 1890 land grants, Centers ofExcellenceExcel ence
5.0 5.0
6.0 6.0
— —
— —
14.0 14.0
— —
— —
-6+8.0 .0
+8-6.0 .0
Tribal Student Scholarships Tribal Student Scholarships
— —
5.0 5.0
— —
— —
5.0 5.0
—5.0
— —
-5+0.0 .0
+0.0 +0.0
International Agriculture Education International Agriculture EducationFellowshipFel owship
— —
1.0 1.0
— —
— —
1.0 1.0
—1.0
— —
-1+0.0 .0
+0.0 +0.0
Pol inator Research Coordinator
—
0.4NOAA working group
—
—
—
—
—
1.0
—
—
+1.0
Pol inator Research Coordinator
—
0.4
—
—
0.4
—
—
+0.0
-0.4
Urban Agriculture Office
—
5.0
—
—
10.0
2.0
—
+5.0
-3
—
—
0.4
—
—
-0.4
+0.0
CRS-24
link to page 30 link to page 30 link to page 31
FY2019
FY2020
FY2021
Change: FY2020 to...
P.L. 116-
COVID-
Admin.
House-
Admin.
House-
Program
P.L. 116-6 94
19 Acts
request
reported
Senate
Enacted
request
reported
Urban Agriculture Office
—
5.0
—
—
7.0
—
—
-5.0
+2.0 .0
Food Loss Liaison Food Loss Liaison
— —
0.4 0.4
— —
— —
0.5 0.5
— —
— —
-0.4
+0.1+0.1
-0.4
Food for Peace Food for Peace
216.0 216.0
— —
— —
— —
— —
— —
— —
— —
— —
Food for Progress Food for Progress
6.0 6.0
— —
— —
— —
— —
— —
— —
— —
— —
Nutrition Assistance Child Nutrition training pilot
—
—
—
—
—
1.0
—
—
+1.0
Nutrition Assistance Program Study Program Study
— —
6.0 6.0
— —
— —
— —
— —
— —
-6.0 -6.0
-6.0 -6.0
Micro-grants for Food Security Micro-grants for Food Security
— —
5.0 5.0
— —
— —
510.0 .0
—5.0
— —
-+5.0 5.0
+0.0 +0.0
School breakfast expansion School breakfast expansion
— —
5.0 5.0
— —
— —
15.0 15.0
— —
— —
-5.0
+10.0
Subtotal, other spending +10.0
-5.0
CRS-28
link to page 34 link to page 34 link to page 35
FY2019
FY2020
FY2021
Change: FY2020 to...
P.L. 116-
COVID-
Admin.
House-
Senate
House-
Senate
Program
P.L. 116-6
94
19 Acts
request
passed
draft
Enacted
passed
draft
Subtotal, other spending provisions
493.5
440.3
12,600.0
0.0
1,023036.4
—483.9
— —
-440.3
+583.1+596.1
+43.6
Disaster/Emergency programs
Ebola prevention and treatment Ebola prevention and treatment
— —
+535.0 +535.0
— —
— —
— —
— —
— —
-535.0 -535.0
-535.0 -535.0
Rescission Rescission of unobligated emergency funding of unobligated emergency funding
— —
-1,500.0 -1,500.0
— —
— —
— —
— —
— —
+1,500.0 +1,500.0
+1,500.0 +1,500.0
WHIP (Wildfire, WHIP (Wildfire, Hurricanes Hurricanes Indemnity Program) Indemnity Program)
— —
+1,500.0 +1,500.0
— —
— —
— —
— —
— —
-1,500.0 -1,500.0
-1,500.0 -1,500.0
Subtotal, disaster/emergency programs
— —
+535..0c
— —
— —
— —
— —
— —
-535.0
-535.0
Total
493.5
975..3c
12,600.0
0.0
1,023036.4
—483.9
—
+61.1
-491.4
—
-975.3
+48.1
Source: CRS, using appropriations text and reports CRS, using appropriations text and reports; and unpublished CBO tables unpublished CBO tables; OMB FY2021 Budget of the U.S. Government, Appendix; and USDA FY2020 Budget
Explanatory Notes. House-passed refers to H.R. 7608, Division B. Senate draft refers to the text released by the Senate Appropriations Committee on November 10, 2020. .
Note: Excludes supplemental appropriations outside the annual appropriations act. Excludes supplemental appropriations outside the annual appropriations act.
a. Includes $9.5 bil ion specifieda. Includes $9.5 bil ion specified in the CARES Act for payments to farmersin the CARES Act for payments to farmers and $3 bil ionand $3 bil ion from indefinite authority in the Familiesfrom indefinite authority in the Families First Coronavirus ReliefFirst Coronavirus Relief Act that Act that
USDA used for the Farmers USDA used for the Farmers to Familiesto Families Food Boxes Program.Food Boxes Program.
b. The ReConnect Broadband Pilot Program that was created in the FY2018 appropriation has been funded by separate appropriation in the General Provisions b. The ReConnect Broadband Pilot Program that was created in the FY2018 appropriation has been funded by separate appropriation in the General Provisions title.title. In In
FY2019 and FY2020 it is augmented by a transfer from the Cushion of Credit account that is available FY2019 and FY2020 it is augmented by a transfer from the Cushion of Credit account that is availableoutsideout side the appropriations caps. For example, in FY2020, the appropriations caps. For example, in FY2020,
appropriators direct $555 mil ionappropriators direct $555 mil ion to ReConnect fromto ReConnect from $300 mil ion$300 mil ion appropriated in Generalappropriated in General Provisions Provisions and $255 mil ionand $255 mil ion from the Cushion of Credit account. For from the Cushion of Credit account. For
FY2021, the AdministrationFY2021, the Administration requests $250 mil ionrequests $250 mil ion in the Rural Utilitiesin the Rural Utilities Service Service account rather than through General Provisions.account rather than through General Provisions.
c. Appropriations designated as emergency spending in FY2020 and are not counted against the discretionary spending limit c. Appropriations designated as emergency spending in FY2020 and are not counted against the discretionary spending limit include $535 mil ioninclude $535 mil ion for Ebola and $1.5 for Ebola and $1.5
bil ion for WHIP, which was offset with $1.5 bil ion in rescissions bil ion for WHIP, which was offset with $1.5 bil ion in rescissions (see(see Table B-4).
. CRS- CRS-2529
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Table B-4. General Provisions: Scorekeeping Adjustments
Budget authority in Budget authority inmillions of dollarsmil ions of dol ars
FY2019
FY2020
FY2021
Change: FY2020 to...
P.L. 116-
COVID-
Admin.
House-
Admin.Senate
House-
Scorekeeping adjustmentSenate
Scorekeeping adjustmenta
P.L. 116-6
94
19 Acts
requesta
reported
Senaterequest
passed
draft
Enacted
request
reportedpassed
draft
Loan program negativesubsidiessubsidiesb
Rural housing negative subsidy Rural housing negative subsidy
-135.0 -135.0
-125.0 -125.0
— —
-130.0 -130.0
-130.0 -130.0
—-130.0
— —
-5.0 -5.0
-5.0 -5.0
Rural community facilities Rural community facilities negative subsidy negative subsidy
-72.0 -72.0
-72.0 -72.0
— —
-88.0 -88.0
-88.0 -88.0
—-88.0
— —
-16.0 -16.0
-16.0 -16.0
Rural elec. Rural elec. & tele.& tele. loan negative subsidy loan negative subsidy
-173.0 -173.0
-176.0 -176.0
— —
-175.0 -175.0
-175.0 -175.0
—-175.0
— —
+1.0 +1.0
+1.0 +1.0
Rural water & waste loan negative subsidy Rural water & waste loan negative subsidy
-2.0 -2.0
-3.0 -3.0
— —
-2.0 -2.0
-2.0 -2.0
—-2.0
— —
+1.0 +1.0
+1.0 +1.0
Ag credit loan negative subsidy Ag credit loan negative subsidy
-23.0 -23.0
-23.0 -23.0
— —
-27.0 -27.0
-27.0 -27.0
—-27.0
— —
-4.0 -4.0
-4.0 -4.0
Subtotal, negative subsidies
-405.0
-399.0
— —
-422.0
-422.0
—-422.0
— —
-23.0
-23.0
Denali Commission Denali Commission
— —
— —
— —
-2.0 -2.0
— —
— —
— —
-2+0.0 .0
+0.0 +0.0
Child nutrition equipment grants Child nutrition equipment grants
1.0 1.0
1.0 1.0
— —
— —
1.0 1.0
—1.0
— —
-1+0.0 .0
+0.0 +0.0
Emergency designations not counted in Emergency designations not counted inallocational ocation
— —
-535. -535.0b0c
—cd
— —
— —
— —
— —
+535.0 +535.0
+535.0 +535.0
Total
-404.0
-933.0
— —
-424.0
-421.0
—-421.0
— —
+509512.0
+512.0
Source: CRS, using CRS, usingappropriations text and reports; unpublished CBO tables; OMB FY2021 Budget of the U.S. Government, Appendix; and USDA FY2020 Budget
Explanatory Notes.
Notes: A negative subsidy for a loan program generallyunpublished CBO tables of scorekeeping adjustments. House-passed refers to H.R. 7608, Division B. Senate draft refers to the text released by the Senate Appropriations Committee on November 10, 2020. a. “Scorekeeping adjustments” are not necessarily appropriated items and may not be shown in Appropriations Committee tables. They are part of the official CBO
score (accounting) of the bil .
b. A negative subsidy for a loan program general y occurs when the interest rate and/or fees charged to the borrowers occurs when the interest rate and/or fees charged to the borrowers are more are more thant han sufficient to cover the costs sufficient to cover the costs
of of
the riskthe risk of default (Governmentof default (Government Accountability Office, “Credit Reform:Accountability Office, “Credit Reform: Current Method to Estimate Credit Subsidy Costs Is More Appropriate for Budget Estimates Current Method to Estimate Credit Subsidy Costs Is More Appropriate for Budget Estimates
Than a Fair Value Approach,” GAO-16-41, January 2016, p. 8).Than a Fair Value Approach,” GAO-16-41, January 2016, p. 8).
a. The Administration’s request does not specify the negative subsidies for the loan programs. This table assumes continuation of amounts in FY2020 pending CBO
scorekeeping that wil accompany FY2021 House and Senate markup.
b
c. Appropriations designated as emergency spending in FY2020 include $535 mil ion. Appropriations designated as emergency spending in FY2020 include $535 mil ion for Ebola and $1.5 bil ion for the Wildfiresfor Ebola and $1.5 bil ion for the Wildfires and Hurricane Indemnity Program, and Hurricane Indemnity Program,
which was offset with $1.5 bil ion in rescissions which was offset with $1.5 bil ion in rescissions of prior-yearof prior-year emergency emergency appropriations (seeappropriations (see Table B-3). .
cd. Amounts in the coronavirus supplemental appropriations acts were. Amounts in the coronavirus supplemental appropriations acts were all al designated as emergencydesignated as emergency spending and are not noted further here because the acts faced no spending and are not noted further here because the acts faced no
budget constraint. budget constraint.
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Appendix C. Budget Sequestration
Sequestration is a process to reduce federal spending through automatic, largely across-the-board Sequestration is a process to reduce federal spending through automatic, largely across-the-board
reductions that permanently cancel mandatory and/or discretionary budget authority.reductions that permanently cancel mandatory and/or discretionary budget authority.3449 A A
sequestration rate is the percentage reduction that is subtracted from an appropriated budget sequestration rate is the percentage reduction that is subtracted from an appropriated budget
authority to achieve an intended budget goal. authority to achieve an intended budget goal.
Sequestration is triggered as a budget enforcement mechanism when federal spending exceeds Sequestration is triggered as a budget enforcement mechanism when federal spending exceeds
statutory budget goals.statutory budget goals.3550 Sequestration is currently authorized by the Budget Control Act (BCA, Sequestration is currently authorized by the Budget Control Act (BCA,
P.L. 112-25). For discretionary accounts, sequestration continues through FY2021. For mandatory P.L. 112-25). For discretionary accounts, sequestration continues through FY2021. For mandatory
accounts, Congress amended the BCA to continue sequestration through FY2029. accounts, Congress amended the BCA to continue sequestration through FY2029.
OMB computes sequestration rates OMB computes sequestration ratesannuallyannual y. Table C-1 shows the rates of sequestration that have shows the rates of sequestration that have
been announced and the total amounts of budget authority that have been been announced and the total amounts of budget authority that have beencancelledcancel ed from accounts from accounts
in Agriculture appropriations. in Agriculture appropriations.
Table C-1. Summary of Sequestration on Agriculture Accounts
( (million dollarsmil ion dol ars) )
Budget
Authority
Sequestered
Sequestration
Subject to
Budget
Fiscal Year
Ratea
Sequestrationb
Authorityb
Discretionary Spending
2013 2013
5.0% 5.0%
23,064 23,064
1,153 1,153
Mandatory Spending
2013 2013
5.1% 5.1%
13,987 13,987
713 713
2014 2014
7.2% 7.2%
14,610 14,610
1,052 1,052
2015 2015
7.3% 7.3%
15,795 15,795
1,153 1,153
2016 2016
6.8% 6.8%
26,748 26,748
1,819 1,819
2017 2017
6.9% 6.9%
24,429 24,429
1,686 1,686
2018 2018
6.6% 6.6%
19,938 19,938
1,316 1,316
2019 2019
6.2% 6.2%
24,682 24,682
1,530 1,530
2020 2020
5.9% 5.9%
23,352 23,352
1,378 1,378
2021 2021
5.7% 5.7%
29,841 29,841
1,701 1,701
Source: CRS, compiled from OMB, CRS, compiled from OMB, Reports to the Congress on the Joint Committee Reductions, various fiscal years. various fiscal years.
AvailableAvailable for FY2018-FY2021for FY2018-FY2021, at https://www.whitehouse.gov/omb/legislative/sequestration- at https://www.whitehouse.gov/omb/legislative/sequestration-reportsreport s-orders-orders and and
for FY2013-FY2017for FY2013-FY2017, at https://obamawhitehouse.archives.gov/omb/legislative_reports/sequestration. at https://obamawhitehouse.archives.gov/omb/legislative_reports/sequestration.
a. Sequestration rates listed here are for nonexempt, nondefense accounts as determineda. Sequestration rates listed here are for nonexempt, nondefense accounts as determined by OMB.by OMB.
b. Totals are computed by CRS for accounts and programsb. Totals are computed by CRS for accounts and programs that are in the jurisdiction of Agriculture that are in the jurisdiction of Agriculture
appropriations. appropriations.
34 CRS
49 CRS Report R43411, Report R43411, The Budget Control Act of 2011: Legislative Changes to the Law and Their Budgetary Effects. .
3550 CRS CRS Report R42972, Report R42972, Sequestration as a Budget Enforcement Process: Frequently Asked Questions. .
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Discretionary Spending
For discretionary spending, sequestration is authorized through FY2021 if discretionary defense For discretionary spending, sequestration is authorized through FY2021 if discretionary defense
and nondefense spending exceed caps that are specified in statute (2 U.S.C. §901(c)). and nondefense spending exceed caps that are specified in statute (2 U.S.C. §901(c)).
In FY2013, the timing of the appropriations acts and the first year of sequestration resulted in In FY2013, the timing of the appropriations acts and the first year of sequestration resulted in
triggering sequestration on discretionary spending. triggering sequestration on discretionary spending.
In FY2014-FY2020, BBAs In FY2014-FY2020, BBAs in 2013, 2015, 2018, and 2019 (P.L. 113-67, P.L. 114-74, P.L. 115-in 2013, 2015, 2018, and 2019 (P.L. 113-67, P.L. 114-74, P.L. 115-
123, and P.L. 116-37, respectively) have avoided sequestration on discretionary spending. These 123, and P.L. 116-37, respectively) have avoided sequestration on discretionary spending. These
BBAs
BBAs raised the discretionary budget caps that were placed in statute by the BCA and raised the discretionary budget caps that were placed in statute by the BCA and allowedal owed
Congress to enact larger appropriations than would have been Congress to enact larger appropriations than would have beenallowedal owed. The enacted . The enacted
appropriations in FY2014-FY2020 met the spending limitations of the revised budget caps, and appropriations in FY2014-FY2020 met the spending limitations of the revised budget caps, and
therefore no sequestration on discretionary accounts was necessary. therefore no sequestration on discretionary accounts was necessary.
For FY2021, the BBA For FY2021, the BBA of 2019 (P.L. 116-37) similarly provides a higher discretionary cap that of 2019 (P.L. 116-37) similarly provides a higher discretionary cap that
may avoid sequestration (see may avoid sequestration (see “Budget Caps, and Subcommittee Allocations”).36Al ocations”).51
Mandatory Spending
Sequestration Occurs and Continues
For mandatory spending, sequestration is presently authorized and scheduled to continue through For mandatory spending, sequestration is presently authorized and scheduled to continue through
FY2029, having been amended and extended by budget acts that were subsequent to the BCA (2 FY2029, having been amended and extended by budget acts that were subsequent to the BCA (2
U.S.C. §901a(6)). That is, sequestration of mandatory spending has not been avoided by the U.S.C. §901a(6)). That is, sequestration of mandatory spending has not been avoided by the
BBAs
BBAs and continues to apply and continues to apply annuallyannual y to certain accounts. to certain accounts.
The original The original FY2021 sunset on the sequestration of FY2021 sunset on the sequestration of mandatory accounts has been extended five accounts has been extended five
times as an offset to pay for raising the caps on times as an offset to pay for raising the caps on discretionary spending to avoid sequestration in spending to avoid sequestration in
the near term (or as a general budgetary offset for other authorization acts): the near term (or as a general budgetary offset for other authorization acts):
1. Congress extended the duration of mandatory sequestration by two years (until 1. Congress extended the duration of mandatory sequestration by two years (until
FY2023) as an offset in BBA FY2023) as an offset in BBA 2013.2013.37
52 2. Congress extended it by another year (until FY2024) to maintain 2. Congress extended it by another year (until FY2024) to maintain retirement retirement
benefits for certain military personnel (P.L. 113-82). benefits for certain military personnel (P.L. 113-82).
3. Congress extended sequestration on nonexempt mandatory accounts another year 3. Congress extended sequestration on nonexempt mandatory accounts another year
(until FY2025) as an offset in BBA (until FY2025) as an offset in BBA 2015.2015.3853
4. Congress extended sequestration on nonexempt mandatory accounts for two 4. Congress extended sequestration on nonexempt mandatory accounts for two
years (until FY2027) as an offset in BBA years (until FY2027) as an offset in BBA 2018 (P.L. 115-123, §30101(c)).2018 (P.L. 115-123, §30101(c)).39
54 5. Congress extended sequestration on nonexempt mandatory accounts by another 5. Congress extended sequestration on nonexempt mandatory accounts by another
two years (until FY2029) as an offset in BBA two years (until FY2029) as an offset in BBA 2019 (P.L. 116-37, §402).2019 (P.L. 116-37, §402).40
36 CRS 55
51 CRS Insight IN11148, Insight IN11148, The Bipartisan Budget Act of 2019: Changes to the BCA and Debt Limit. .
3752 CBO, CBO, Bipartisan Budget Act of 2013, December 11, 2013, https://www.cbo.gov/publication/44964. , December 11, 2013, https://www.cbo.gov/publication/44964.
3853 CBO, CBO, Bipartisan Budget Act of 2015, October 28, 2015, https://www.cbo.gov/publication/50938. In addition to , October 28, 2015, https://www.cbo.gov/publication/50938. In addition to
extending sequestration and related to mandatory spending in agriculture,extending sequestration and related to mandatory spending in agriculture, crop insurance wascrop insurance was used used as an additional as an additional
budgetarybudgetary offset in BBAoffset in BBA 2015. 2015. TheT he effect was temporary, however, and the crop insurance reduction was effect was temporary, however, and the crop insurance reduction was restored. For restored. For
more background,more background, see the section on crop insurance and the Standard Reinsurancesee the section on crop insurance and the Standard Reinsurance Agreement in CRSAgreement in CRS Report R44240, Report R44240,
Agriculture and Related Agencies: FY2016 Appropriations. .
3954 CBO, CBO, Bipartisan Budget Act of 2018, February 8, 2018, https://www.cbo.gov/publication/53556. , February 8, 2018, https://www.cbo.gov/publication/53556.
4055 CBO, CBO, Bipartisan Budget Act of 2019, July 23, 2019, https://www.cbo.gov/publication/55478. , July 23, 2019, https://www.cbo.gov/publication/55478.
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Exemptions from Sequestration
Some USDA mandatory programs are statutorily exempt from sequestration. Those expressly Some USDA mandatory programs are statutorily exempt from sequestration. Those expressly
exempt by statute are the nutrition programs (SNAP, the child nutrition programs, and the exempt by statute are the nutrition programs (SNAP, the child nutrition programs, and the
Commodity Supplemental Food Program)Commodity Supplemental Food Program)4156 and the Conservation Reserve Program. and the Conservation Reserve Program.4257 Some prior Some prior
legal obligations in the Federal Crop Insurance legal obligations in the Federal Crop InsuranceCorporation43Corporation58 and the farm commodity programs and the farm commodity programs
may be may beexempt44exempt59 as determined by OMB. as determined by OMB.45
Generally60
General y speaking, the experience since FY2013 is that OMB has ruled that most of crop speaking, the experience since FY2013 is that OMB has ruled that most of crop
insurance is exempt from sequestration, while the farm commodity programs, disaster assistance, insurance is exempt from sequestration, while the farm commodity programs, disaster assistance,
and most conservation programs have been subject to it.and most conservation programs have been subject to it.4661
Implementation of Sequestration
Nonexempt mandatory spending in FY2021 is to be reduced by a 5.7% sequestration Nonexempt mandatory spending in FY2021 is to be reduced by a 5.7% sequestrationraterate (Table
C-1) and thus would be paid at 94.3% of what would otherwise have been provided. This is and thus would be paid at 94.3% of what would otherwise have been provided. This is
projected to result in a reduction of about $1.7 projected to result in a reduction of about $1.7billionbil ion from mandatory agriculture accounts in from mandatory agriculture accounts in
FY2021, including over $1.3 FY2021, including over $1.3billion bil ion from the CCC that has $23 from the CCC that has $23 billion bil ion of budget authority of budget authority
subject to sequestration.subject to sequestration.
For example, for the farm commodity programs that support farm income such as the Agricultural For example, for the farm commodity programs that support farm income such as the Agricultural
Risk Coverage and Price Loss Coverage programs,Risk Coverage and Price Loss Coverage programs,4762 payments to farmers are computed by a payments to farmers are computed by a
regular formula authorized in the farm regular formula authorized in the farmbillbil , and the final actual payment to the farmer is reduced , and the final actual payment to the farmer is reduced
by the sequestration rate. For programs that operate on a fixed budget authority, such as the by the sequestration rate. For programs that operate on a fixed budget authority, such as the
Environmental Quality Incentives Program and the Market Assistance Program, the sequestration Environmental Quality Incentives Program and the Market Assistance Program, the sequestration
rate is applied to the availablerate is applied to the available budget authority for the fiscal year. budget authority for the fiscal year.
41 2 U.S.C. §905(h).
42 2 U.S.C. §905(g)(1)(A).
43 2 U.S.C. §905(g)(2).
44 2 U.S.C. §906(j).
45
56 2 U.S.C. §905(h). 57 2 U.S.C. §905(g)(1)(A). 58 2 U.S.C. §905(g)(2). 59 2 U.S.C. §906(j). 60 Some administrative expenses may be subject Some administrative expenses may be subject to sequestration, and therefore programs that are otherwise exempt to sequestration, and therefore programs that are otherwise exempt
may have a relatively small sequestration-eligible amount compared to their total budget authority. may have a relatively small sequestration-eligible amount compared to their total budget authority.ThisT his has been the has been the
case for the Federal Crop Insurance Corporation, SNAP, child nutrition programs, and WIC.case for the Federal Crop Insurance Corporation, SNAP, child nutrition programs, and WIC.
4661 CRS CRS Report R42050, Report R42050, Budget “Sequestration” and Selected Program Exemptions and Special Rules. .
4762 CRS CRS In FocusIn Focus IF11161, IF11161, 2018 Farm Bill Primer: ARC and PLC Support Programs. .
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Appendix D. Action on Agriculture Appropriations,
FY1996-FY2021
Table D-1. Congressional Action on Agriculture Appropriations Since FY1996
House Action
Senate Action
Final Appropriation
Fiscal
CRS
Year
Subcmte.
Cmte.
Floor
Subcmte.
Cmte.
Floor
Enacted
Public Law
Report
1996 1996
6/14/1995 6/14/1995
6/27/1995 6/27/1995
7/21/1995 7/21/1995
9/13/1995 9/13/1995
9/14/1995 9/14/1995
9/20/1995 9/20/1995
10/21/1995 10/21/1995
E P.L. 104-37 E P.L. 104-37
95-624 95-624
1997 1997
5/30/1996 5/30/1996
6/6/1996 6/6/1996
6/12/1996 6/12/1996
7/10/1996 7/10/1996
7/11/1996 7/11/1996
7/24/1996 7/24/1996
8/6/1996 8/6/1996
E P.L. 104-180 E P.L. 104-180
IB96015 IB96015
1998 1998
6/25/1997 6/25/1997
7/14/1997 7/14/1997
7/24/1997 7/24/1997
7/15/1997 7/15/1997
7/17/1997 7/17/1997
7/24/1997 7/24/1997
11/18/1997 11/18/1997
E P.L. 105-86 E P.L. 105-86
97-201 97-201
1999 1999
6/10/1998 6/10/1998
6/16/1998 6/16/1998
6/24/1998 6/24/1998
6/9/1998 6/9/1998
6/11/1998 6/11/1998
7/16/1998 7/16/1998
10/21/1998 O P.L. 105-277 10/21/1998 O P.L. 105-277
98-201 98-201
2000 2000
5/13/1999 5/13/1999
5/24/1999 5/24/1999
6/8/1999 6/8/1999
6/15/1999 6/15/1999
6/17/1999 6/17/1999
8/4/1999 8/4/1999
10/22/1999 10/22/1999
E P.L. 106-78 E P.L. 106-78
RL30201 RL30201
2001 2001
5/4/2000 5/4/2000
5/16/2000 5/16/2000
7/11/2000 7/11/2000
5/4/2000 5/4/2000
5/10/2000 5/10/2000
7/20/2000 7/20/2000
10/28/2000 10/28/2000
E P.L. 106-387 E P.L. 106-387
RL30501 RL30501
2002 2002
6/6/2001 6/6/2001
6/27/2001 6/27/2001
7/11/2001 7/11/2001
Pol ed out Pol ed out
7/18/2001 10/25/2001 11/28/2001 7/18/2001 10/25/2001 11/28/2001
E P.L. 107-76 E P.L. 107-76
RL31001 RL31001
2003 2003
6/26/2002 6/26/2002
7/26/2002 7/26/2002
— —
7/23/2002 7/23/2002
7/25/2002 7/25/2002
— —
2/20/2003 2/20/2003
O P.L. 108-7 O P.L. 108-7
RL31301 RL31301
2004 2004
6/17/2003 6/17/2003
7/9/2003 7/9/2003
7/14/2003 7/14/2003
7/17/2003 7/17/2003
11/6/2003 11/6/2003
11/6/2003 11/6/2003
1/23/2004 1/23/2004
O P.L. 108-199 O P.L. 108-199
RL31801 RL31801
2005 2005
6/14/2004 6/14/2004
7/7/2004 7/7/2004
7/13/2004 7/13/2004
9/8/2004 9/8/2004
9/14/2004 9/14/2004
— —
12/8/2004 12/8/2004
O P.L. 108-447 O P.L. 108-447
RL32301 RL32301
2006 2006
5/16/2005 5/16/2005
6/2/2005 6/2/2005
6/8/2005 6/8/2005
6/21/2005 6/21/2005
6/27/2005 6/27/2005
9/22/2005 9/22/2005
11/10/2005 11/10/2005
E P.L. 109-97 E P.L. 109-97
RL32904 RL32904
2007 2007
5/3/2006 5/3/2006
5/9/2006 5/9/2006
5/23/2006 5/23/2006
6/20/2006 6/20/2006
6/22/2006 6/22/2006
— —
2/15/2007 2/15/2007
Y P.L. 110-5 Y P.L. 110-5
RL33412 RL33412
2008 2008
7/12/2007 7/12/2007
7/19/2007 7/19/2007
8/2/2007 8/2/2007
7/17/2007 7/17/2007
7/19/2007 7/19/2007
— —
12/26/2007 O P.L. 110-161 12/26/2007 O P.L. 110-161
RL34132 RL34132
2009 2009
6/19/2008 6/19/2008
— —
— —
Pol ed out Pol ed out
7/17/2008 7/17/2008
— —
3/11/2009 3/11/2009
O P.L. 111-8 O P.L. 111-8
R40000 R40000
2010 2010
6/11/2009 6/11/2009
6/18/2009 6/18/2009
7/9/2009 7/9/2009
Pol ed out Pol ed out
7/7/2009 7/7/2009
8/4/2009 8/4/2009
10/21/2009 10/21/2009
E P.L. 111-80 E P.L. 111-80
R40721 R40721
2011 2011
6/30/2010 6/30/2010
— —
— —
Pol ed out Pol ed out
7/15/2010 7/15/2010
— —
4/15/2011 4/15/2011
Y P.L. 112-10 Y P.L. 112-10
R41475 R41475
2012 2012
5/24/2011 5/24/2011
5/31/2011 5/31/2011
6/16/2011 6/16/2011
Pol ed out Pol ed out
9/7/2011 9/7/2011
11/1/2011 11/1/2011
11/18/2011 O P.L. 112-55 11/18/2011 O P.L. 112-55
R41964 R41964
2013 2013
6/6/2012 6/6/2012
6/19/2012 6/19/2012
— —
Pol ed out Pol ed out
4/26/2012 4/26/2012
— —
3/26/2013 3/26/2013
O P.L. 113-6 O P.L. 113-6
R43110 R43110
2014 2014
6/5/2013 6/5/2013
6/13/2013 6/13/2013
— —
6/18/2013 6/18/2013
6/20/2013 6/20/2013
— —
1/17/2014 1/17/2014
O P.L. 113-76 O P.L. 113-76
R43110 R43110
2015 2015
5/20/2014 5/20/2014
5/29/2014 5/29/2014
— —
5/20/2014 5/20/2014
5/22/2014 5/22/2014
— —
12/16/2014 O P.L. 113-235 12/16/2014 O P.L. 113-235
R43669 R43669
2016 2016
6/18/2015 6/18/2015
7/8/2015 7/8/2015
— —
7/14/2015 7/14/2015
7/16/2015 7/16/2015
— —
12/18/2015 O P.L. 114-113 12/18/2015 O P.L. 114-113
R44240 R44240
2017 2017
4/13/2016 4/13/2016
4/19/2016 4/19/2016
— —
5/17/2016 5/17/2016
5/19/2016 5/19/2016
— —
5/5/2017 5/5/2017
O P.L. 115-31 O P.L. 115-31
R44588 R44588
2018 2018
6/28/2017 6/28/2017
7/12/2017 7/12/2017
9/14/2017 9/14/2017
7/18/2017 7/18/2017
7/20/2017 7/20/2017
— —
3/23/2018 3/23/2018
O P.L. 115-141 O P.L. 115-141
R45128 R45128
2019 2019
5/9/2018 5/9/2018
5/16/2018 5/16/2018
— —
5/22/2018 5/22/2018
5/24/2018 5/24/2018
8/1/2018 8/1/2018
2/15/2019 2/15/2019
O P.L. 116-6 O P.L. 116-6
R45230 R45230
2020 2020
5/23/2019 5/23/2019
6/4/2019 6/4/2019
6/25/2019 6/25/2019
9/17/2019 9/17/2019
9/19/2019 10/31/2019 12/20/2019 O P.L. 116-94 9/19/2019 10/31/2019 12/20/2019 O P.L. 116-94
R45974 R45974
2021 2021
7/6/2020 7/6/2020
7/9/2020 7/9/2020
—7/24/2020
— —
—11/10/2020a
— —
— —
— —
— —
R46437 R46437
Source: CRS. CRS.
Notes: E = enacted as standalone appropriation (eight times E = enacted as standalone appropriation (eight times over 25 years); O = omnibus appropriation (15 over 25 years); O = omnibus appropriation (15
times); Y = year-long CR (two times).times); Y = year-long CR (two times). “Pol ed out” refers“Pol ed out” refers to a procedure that permitsto a procedure that permits a Senate subcommitteea Senate subcommittee to to
transmit a bil to its ful committeetransmit a bil to its ful committee without a formalwithout a formal markup session.markup session. See CRS Report RS22952, See CRS Report RS22952, Proxy Voting and
PollingPol ing in Senate Committee. .
a. Senate committee action for FY2021 refers to a draft released by the Senate Appropriations Committee. Congressional Research Service Congressional Research Service
3034
Agriculture and Related Agencies: FY2021 Appropriations
Author Information
Jim Monke Jim Monke
Specialist in Agricultural Policy Specialist in Agricultural Policy
Key Policy Staff
Area of Expertise
Name
Agricultural appropriations, USDA Agricultural appropriations, USDA budget budget
Jim Monke Jim Monke
Agricultural Marketing Service Agricultural Marketing Service
Joel Greene Joel Greene
Animal Animal and Plant Health Inspection Service and Plant Health Inspection Service
Tadlock CowanAmber Nair Renee Johnson
Commodity Commodity Futures Trading Commission Futures Trading Commission
Rena Mil er Rena Mil er
Conservation Conservation
Megan Stubbs Megan Stubbs
Crop insurance Crop insurance
Stephanie Rosch Stephanie Rosch
Disaster Disaster assistance assistance
Megan Stubbs Megan Stubbs
Farm FarmCommodity Programscommodity programs
Randy Schnepf Randy Schnepf
Farm FarmService Agencyloans and credit
Jim Monke Jim Monke
Food and Drug Administration Food and Drug Administration
Agata Dabrowska Agata Dabrowska
Food safety, Food safety,generally
Renéegeneral y
Amber Nair Renee Johnson Johnson
Food safety, meat and poultry inspection Food safety, meat and poultry inspection
Joel Greene Joel Greene
International food assistance International food assistance
Alyssa Casey Alyssa Casey
Nutrition and domestic food assistance Nutrition and domestic food assistance
Randy Alison Randy Alison Aussenberg Aussenberg
Kara Clifford Bil ings Kara Clifford Bil ings
Research and extension Research and extension
Genevieve Genevieve Croft Croft
Rural development Rural development
Alyssa Casey Alyssa Casey
Trade Trade
Anita Regmi Anita Regmi
Congressional Research Service Congressional Research Service
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Agriculture and Related Agencies: FY2021 Appropriations
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
under the direction of Congress. Information in a CRS Report should under the direction of Congress. Information in a CRS Report shouldnotn ot be relied upon for purposes other be relied upon for purposes other
than public understanding of information that has been provided by CRS to Members of Congress in than public understanding of information that has been provided by CRS to Members of Congress in
connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not
subject to copyright protection in the United States. Any CRS Report may be reproduced and distributed in subject to copyright protection in the United States. Any CRS Report may be reproduced and distributed in
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Congressional Research Service Congressional Research Service
R46437 R46437 · VERSION56 · UPDATED
3236
FY2021 Appropriations
Jim Monke
The Agriculture appropriations The Agriculture appropriations
Specialist in Agricultural Specialist in Agricultural
except for the U.S. Forest Service. It also funds the Food and Drug Administration except for the U.S. Forest Service. It also funds the Food and Drug Administration
Policy Policy
(FDA) and—in even-numbered fiscal years—the Commodity Futures Trading (FDA) and—in even-numbered fiscal years—the Commodity Futures Trading
Commission (CFTC). Commission (CFTC).
Agriculture appropriations include both mandatory and discretionary spending. Discretionary amounts, though, Agriculture appropriations include both mandatory and discretionary spending. Discretionary amounts, though,
are the primary focus during the are the primary focus during the
Supplemental Nutrition Program for Women, Infants, and Children (WIC); agricultural research; rural Supplemental Nutrition Program for Women, Infants, and Children (WIC); agricultural research; rural
development; FDA; foreign food assistance and trade; farm assistance loans and salaries; food safety inspection; development; FDA; foreign food assistance and trade; farm assistance loans and salaries; food safety inspection;
animal and plant health programs; and technical assistance for conservation programs. animal and plant health programs; and technical assistance for conservation programs.
foreign assistance (+$72 foreign assistance (+$72
Agriculture appropriations subcommittees. The Agriculture appropriations subcommittees. The
and farm production and conservation agencies (-$530 and farm production and conservation agencies (-$530
Separate from the regular FY2020 annual appropriation, Congress passed four supplemental appropriations acts in Separate from the regular FY2020 annual appropriation, Congress passed four supplemental appropriations acts in
response to the COVID-19 pandemic, response to the COVID-19 pandemic,
during FY2020 to programs in the jurisdiction of the Agriculture appropriations subcommittees. Of this, $36 during FY2020 to programs in the jurisdiction of the Agriculture appropriations subcommittees. Of this, $36
reimbursement for past obligations that is comparable to the annual appropriation. reimbursement for past obligations that is comparable to the annual appropriation.
Congressional Research Service Congressional Research Service
Agriculture and Related Agencies: FY2021 Appropriations
Figure 1.Discretionary Agriculture Appropriations, by Title, FY2020-FY2021 Discretionary Agriculture Appropriations, by Title, FY2020-FY2021
Source:
Commission.Commission.
Congressional Research Service Congressional Research Service
link to page 6 link to page 9 link to page 11 link to page 12 link to page 12 link to page link to page 6 link to page 9 link to page 11 link to page 12 link to page 12 link to page
Contents
Status of FY2021 Agriculture Appropriations ......................................................................
Scope of Agriculture Appropriations ..................................................................................
Recent Trends in Agriculture Appropriations .......................................................................
Policy-Related Provisions .........................................................................................
COVID-19 Supplemental Appropriations in FY2020
Figure
Figure
Figure
Figure
8 Tables
Table 1. Status of FY2021 Agriculture Appropriations ..........................................................
Table 2. Agriculture and Related Agencies Appropriations, by Title, FY2020-FY2021 ...............
Table 3. Agriculture and Related Agencies Appropriations, by Agency, FY2019-FY2021 .........
15 Table A-1. USDA Departmental Administration Appropriations ...........................................
Table B-1. General Provisions: Changes in Mandatory Program Spending (CHIMPS) .............
Table B-2. General Provisions: Rescissions from Discretionary Accounts ..............................
Table B-3. General Provisions: Other Appropriations
Table B-4. General Provisions: Scorekeeping Adjustments ..................................................
Table C-1. Summary of Sequestration on Agriculture Accounts ............................................
Table D-1. Congressional Action on Agriculture Appropriations Since FY1996 ......................
34 Congressional Research Service link to page 28 link to page 30 link to page 36 link to page 39 link to page 40 Agriculture and Related Agencies: FY2021 Appropriations Appendixes
Appendix A. Appropriations in Administrative Accounts .....................................................
Appendix C. Budget Sequestration ..................................................................................
Appendix D. Action on Agriculture Appropriations, FY1996-FY2021 ...................................
Contacts
Author Information .......................................................................................................
Congressional Research Service Congressional Research Service
link to page 6 link to page 8 link to page link to page 6 link to page 8 link to page
Status of FY2021 Agriculture Appropriations
of timelines aof timelines and Appendix D for more details. for more details.
Table 1. Status of FY2021 Agriculture Appropriations
Continuing Final House Action
Senate Action
Request
Subcmte.
Cmte.
Floor
Subcmte.
Cmte.
Floor
2/10/2020 2/10/2020
7/6/2020 7/6/2020
7/9/2020 7/9/2020
— —
OMB Budget OMB Budget
Appendix Appendix
Draf Drafta
H.R. 7610 H.R. 7610
Note: OMB = Office of Management and Budget, USDA = U.S.OMB = Office of Management and Budget, USDA = U.S.
Drug Administration,Drug Administration,
Administration. Administration.
a. a.
of $of $
changes changes
(+$615 (+$615
Agriculture Subcommittee of the House Appropriations Committee and in the Financial ServicesAgriculture Subcommittee of the House Appropriations Committee and in the Financial Services
Government Subcommittee of the Senate Appropriations Committee. Government Subcommittee of the Senate Appropriations Committee.
Congressional Research Service Congressional Research Service
1 1
link to page 7 link to page 7 link to page 7 link to page 7 link to page 7 link to page 7 link to page link to page 7 link to page 7 link to page 7 link to page 7 link to page 7 link to page 7 link to page
mil ion) and rural development (-$127 mil ion) but relatively more for domestic nutrition programs after accounting for rescissions (+$402 mil ion). Table 2. Agriculture and Related Agencies Appropriations, by Title, FY2020-FY2021
Budget authority in Budget authority in
FY2020
FY2021
Change from FY2020 Title of Agriculture
COVID-19
Admin.
House-
P.L. 116-94
Actsa
Enacted
I. Agricultural I. Agricultural
6,163.1 6,163.1
133.8 133.8
6,148.0 6,148.0
6, 6,
Mandatory Mandatory
1,404.0 1,404.0
— —
1,359.9
1,359.9 1,359.9
— —
-44.1 -44.1
Subtotal Subtotal
7,567.1 7,567.1
— —
7,507.8
7,470.4 7,500.9 — -96.8 -66.3 II. Farm Production, Conservation 2,819.0 2,819.0
3.0 3.0
2,618.7 2,618.7
2,835.5 2,835.5
+16.5 +16.5
+10.2 Mandatory 36,268.5 36,268.5
14,000.0 14,000.0
34,269.6
34,269.6 34,269.6
— —
-1,998.9 -1,998.9
Subtotal Subtotal
39,087.5 39,087.5
14,003.0 14,003.0
36,888.3 36,888.3
37,105.1 37,105.1
— —
-1,982.4 -1,982.4
-1,988.8 III. Rural Development III. Rural Development
3,240. 3,240.6c
45.5 45.5
3,410.5 3,410.5
3, 3,
IV. Domestic IV. Domestic
6,566.0 6,566.0
1,350.0 1,350.0
5,700.7 5,700.7
6,383.3 6,383.3
-182.7 -182.7
+20.0 Mandatory Mandatory
91,436.3 91,436.3
24,710.0 24,710.0
93,309.8
Subtotal Subtotal
98,002.3 98,002.3
26,060.0 26,060.0
99,010.5
2,172.7 2,172.7
4.0 4.0
205.9 205.9
2,244.4 2,244.4
VI. Food and Drug Administration VI. Food and Drug Administration
3,171. 3,171.5c
163.0 163.0
3,220.4 3,220.4
3, 3,
Commodity Commodity
315.0 315.0
—
226.5 226.5
304.0 304.0
-11.0 -11.0
VII. General VII. General
CHIMPS and rescission CHIMPS and rescissionsd
-1,006.1 -1,006.1
—
-1,200.0 -1,200.0
-988.0 -988.0
Emergency appropriations Emergency appropriations
535.0 535.0
—
0.0 0.0
-535.0 -535.0
Other appropriations Other appropriations
440.3 440.3
12,600.0 12,600.0
0.0 0.0
1, 1,
Scorekeeping Scorekeeping
-398.0 -398.0
—
-424.0 -424.0
-421.0 -421.0
-23.0 -23.0
Emergency designation Emergency designation
-535.0 -535.0
—a
0.0 0.0
+535.0 +535.0
[23,169.1] [23,169.1]
14,299.3 14,299.3
19,680.2 [23, 19,680.2 [23,
23,484.1 23,484.1
14,299.3 14,299.3
19,906.7 19,906.7
23, 23,
Mandatory Mandatory
129,108.8 129,108.8
38,710.0 38,710.0
128,939.3
Total: Senate basis Total: Senate basis
[152,278.0] [152,278.0]
53,009.3 53,009.3
148,619.4
Total: House basis Total: House basis
152,593.0 152,593.0
53,009.3 53,009.3
148,845.9
Source: CRS, using appropriations text and reports CRS, using appropriations text and reports
Notes: Amounts are nominal discretionary budget authority unless labeled otherwise.Amounts are nominal discretionary budget authority unless labeled otherwise.
not in the official totals due to differing House-Senate jurisdiction for CFTC but are shown for comparison. not in the official totals due to differing House-Senate jurisdiction for CFTC but are shown for comparison.
a. Total from four coronavirus supplemental appropriations acts (P.L. 116-123, P.L. 116-127, P.L. 116-136, P.L. a. Total from four coronavirus supplemental appropriations acts (P.L. 116-123, P.L. 116-127, P.L. 116-136, P.L.
116-139), 116-139),
grouped here for comparison to accounts in the annual appropriations. See detail ingrouped here for comparison to accounts in the annual appropriations. See detail in
b. The request is based on current law and does not reflect the Administration’s b. The request is based on current law and does not reflect the Administration’s
c. Excludes amounts that are provided separatelyc. Excludes amounts that are provided separately
. Congressional Research Service 2 link to page 30 link to page 30 link to page 31 link to page 35 link to page 39 Agriculture and Related Agencies: FY2021 Appropriations d. Changes in Mandatory Program Spending (CHIMPS) revised. Changes in Mandatory Program Spending (CHIMPS) revise
B-1). Rescissions. Rescissions
e. “Scorekeeping e. “Scorekeeping
Source: CRS. For specific dates and links CRS. For specific dates and links
Other CRS Resources for Agricultural Appropriations
CRS In Focus IF11491, Supplemental Appropriations for Agriculture and Related Agencies Due to COVID-19 CRS Insight IN11250, USDA Domestic Food Assistance Programs’ Response to COVID-19: P.L. 116-127, P.L. 116-136, and Related Efforts CRS Report R46488, USDA Domestic Food Assistance Programs: FY2020 Appropriations CRS Report R46255, International Food Assistance: FY2020 Appropriations CRS Report R46011, FY2020 Appropriations for Agricultural Conservation CRS In Focus IF11452, Staffing Trends in the USDA Farm Production and Conservation (FPAC) Mission Area CRS Insight IN11168, The CCC Anomaly in an FY2020 Continuing Resolution CRS Report R44576, The Food and Drug Administration (FDA) Budget: Fact Sheet CRS Report R45413, FY2018 and FY2019 Agriculture Appropriations: Federal Food Safety Activities CRS In Focus IF10953, Agriculture Appropriations: Animal and Plant Health Congressional Research Service Congressional Research Service
3 3
link to page 10 link to page 10 link to page 10 link to page 10 Agriculture and Related Agencies: FY2021 Appropriations
Scope of Agriculture Appropriations
The Agriculture appropriations The Agriculture appropriations
Food and Drug Administration, and Related Agencies Appropriations Act—funds Food and Drug Administration, and Related Agencies Appropriations Act—funds
Department of Agriculture (USDA), excluding the U.S. Forest Service.2 It also funds the Food Department of Agriculture (USDA), excluding the U.S. Forest Service.2 It also funds the Food
and Drug Administration (FDA) and Drug Administration (FDA)
even-numbered fiscal years, CFTC. even-numbered fiscal years, CFTC.
Jurisdiction is with the House and Senate Committees on Appropriations and their Subcommittees Jurisdiction is with the House and Senate Committees on Appropriations and their Subcommittees
on Agriculture, Rural Development, Food and Drug Administration, and Related Agencies. The on Agriculture, Rural Development, Food and Drug Administration, and Related Agencies. The
focusfocus (Figure
Agriculture Committees, such as FDA; Special Supplemental Nutrition Program for Women, Agriculture Committees, such as FDA; Special Supplemental Nutrition Program for Women,
Infants, and Children (WIC); or child nutrition (checkered regions iInfants, and Children (WIC); or child nutrition (checkered regions in Figure
The federal budget process treats discretionary and mandatory spending differently:3 The federal budget process treats discretionary and mandatory spending differently:3
Discretionary spending is controlled by annual appropriations acts and receives is controlled by annual appropriations acts and receives
most of the attention during the appropriations process. The annual budget most of the attention during the appropriations process. The annual budget
resolution4 process sets spending limits for discretionary appropriations. Agency resolution4 process sets spending limits for discretionary appropriations. Agency
operations (salaries and expenses) and many grant programs are discretionary. operations (salaries and expenses) and many grant programs are discretionary.
Mandatory spending55 isis carried in the appropriation and carried in the appropriation and
unchanged, since it is controlled by budget rules during the authorization unchanged, since it is controlled by budget rules during the authorization
process.6 Spending for so-process.6 Spending for so-
as the 2018 farm as the 2018 farm
In the FY2020 appropriation (P.L. 116-94), the discretionary amount is 15% ($23 In the FY2020 appropriation (P.L. 116-94), the discretionary amount is 15% ($23
$153 $153
the total, of which about $106 the total, of which about $106
Within the discretionary total, the largest spending items are WIC, agricultural research, rural Within the discretionary total, the largest spending items are WIC, agricultural research, rural
development, FDA, foreign food aid and trade, farm assistance loans and salaries, food safety development, FDA, foreign food aid and trade, farm assistance loans and salaries, food safety
inspection, animal and plant health programs, and technical assistance for conservation program.inspection, animal and plant health programs, and technical assistance for conservation program.
The main mandatory spending items are the Supplemental Nutrition Assistance Program (SNAP) The main mandatory spending items are the Supplemental Nutrition Assistance Program (SNAP)
and other food and nutrition act programs, child nutrition (school lunch and related programs), and other food and nutrition act programs, child nutrition (school lunch and related programs),
crop insurance, and farm commodity and conservation programs that are funded through USDA’s crop insurance, and farm commodity and conservation programs that are funded through USDA’s
Commodity Credit Corporation (CCC). SNAP is referred to as an “appropriated entitlement” and Commodity Credit Corporation (CCC). SNAP is referred to as an “appropriated entitlement” and
requires an annual appropriation.9 Amounts for the nutrition program are based on projected requires an annual appropriation.9 Amounts for the nutrition program are based on projected
spending needs. In contrast, the CCC appropriations reimburse spending from a line of credit.10 spending needs. In contrast, the CCC appropriations reimburse spending from a line of credit.10
2 Although the Forest Service is part2 Although the Forest Service is part
3 See3 See
5 Mandatory spending creates funding5 Mandatory spending creates funding
agriculture, it originated with farm commodity programs that had uncertain outlays due to weather and markets. agriculture, it originated with farm commodity programs that had uncertain outlays due to weather and markets.
6 See 6 See
7 P.L. 115-334 (Agricultural Act of 2018). See CRS7 P.L. 115-334 (Agricultural Act of 2018). See CRS
8 P.L. 111-296 (Healthy, Hunger-Free Kids Act of 2010). See CRS8 P.L. 111-296 (Healthy, Hunger-Free Kids Act of 2010). See CRS
(CNR): An Overview. .
9 See 9 See
10 See10 See
Congressional Research Service Congressional Research Service
4 4
Agriculture and Related Agencies: FY2021 Appropriations
Figure
Budget authority in Budget authority in
Source: CRS. CRS.
Notes: SNAP = Supplemental Nutrition Assistance Program; SNAP = Supplemental Nutrition Assistance Program;
FederalFederal
Special Supplemental Nutrition Program for Women,Special Supplemental Nutrition Program for Women,
Food Program; FDAFood Program; FDA
Conservation Business Center; RMA = Risk Management Agency; FSIS = Food Safety and Inspection Service; Conservation Business Center; RMA = Risk Management Agency; FSIS = Food Safety and Inspection Service;
APHIS = AnimalAPHIS = Animal
not show agencies under $0.5 bil ion.not show agencies under $0.5 bil ion.
Key Budget Terms
Budget
provides the legal basis from which to obligate funds. It expiresprovides the legal basis from which to obligate funds. It expires
specified otherwisespecified otherwise
Obligations are contractual agreements between a governmentare contractual agreements between a government
when an agency agrees to spend money from its budget authority. The Antideficiency Act prohibits agencies from when an agency agrees to spend money from its budget authority. The Antideficiency Act prohibits agencies from
obligating moreobligating more
Outlays are the payments (cash disbursements) that satisfy a valid obligation.are the payments (cash disbursements) that satisfy a valid obligation.
budget authority or obligations because payments from an agency may not occur until servicesbudget authority or obligations because payments from an agency may not occur until services
are delivered,are delivered,
Program level representsrepresents
a budget authority if the program (1) receivesa budget authority if the program (1) receives
of repayment (loan authority may exceed budget authority), or (3) receivesof repayment (loan authority may exceed budget authority), or (3) receives
Rescissions are actions that reduce budget authority after enactment. They are actions that reduce budget authority after enactment. They
CHIMPS (Changes in Mandatory Program Spending) are adjustments via an appropriations act that can change (Changes in Mandatory Program Spending) are adjustments via an appropriations act that can change
available funding for mandatory programs.available funding for mandatory programs.
an increase or decrease to outlays. They do not change the underlying authority of the program in law.an increase or decrease to outlays. They do not change the underlying authority of the program in law.
For moreFor more
Congressional Research Service Congressional Research Service
5 5
link to page 11 link to page 11
Agriculture and Related Agencies: FY2021 Appropriations
Recent Trends in Agriculture Appropriations
Discretionary Agriculture appropriations reached a 10-year low in FY2013 after decreasing from Discretionary Agriculture appropriations reached a 10-year low in FY2013 after decreasing from
a high ina high in
within titles have within titles have
have sustained relative increases, such as FDA (related agencies) and rural development. have sustained relative increases, such as FDA (related agencies) and rural development.
The stacked bars i The stacked bars in Figure
title. The total of the positive stacked bars is the budget authority in Titles I-VI. In FY2018, title. The total of the positive stacked bars is the budget authority in Titles I-VI. In FY2018,
USDA reorganization affected the placement of some programs between Titles I and II of the USDA reorganization affected the placement of some programs between Titles I and II of the
bil (most noticeably the Farm Service Agency). In most years, the cumulative appropriation for the (most noticeably the Farm Service Agency). In most years, the cumulative appropriation for the
agencies is higher than the official discretionary total in the spending agencies is higher than the official discretionary total in the spending
because of the budgetary offset from negative amounts in Title VII (general provisions) and other because of the budgetary offset from negative amounts in Title VII (general provisions) and other
negative scorekeeping adjustments. These negative offsets are mostly due to rescissions of prior-negative scorekeeping adjustments. These negative offsets are mostly due to rescissions of prior-
year unobligated funds and, before FY2018, limits placed on mandatory programs. year unobligated funds and, before FY2018, limits placed on mandatory programs.
Historical trends may be tempered by inflation adjustments, as shown in the dotted line. In Historical trends may be tempered by inflation adjustments, as shown in the dotted line. In
FY2020 the inflation-adjusted total is 0.2% less than it was in FY2011 and 2.8% less than it was FY2020 the inflation-adjusted total is 0.2% less than it was in FY2011 and 2.8% less than it was
in FY2018. in FY2018.
Figure
Source: CRS. CRS.
Note: For FY2021, Adm.For FY2021, Adm.
passed H.R. 7608, Division B; and Sen. is the Senate Appropriations Committee draft. For comparability, includes CFTC in Related Agenciesincludes CFTC in Related Agencies
calculated using the grosscalculated using the gross
which is the subcommitteewhich is the subcommittee
Congressional Research Service Congressional Research Service
6 6
link to page link to page
Action on FY2021 Appropriations
Administration’s Budget Request
The Trump Administration released its FY2021 budget proposal to Congress on February 10, The Trump Administration released its FY2021 budget proposal to Congress on February 10,
2020.2020.
the FDA,the FDA,
highlighted separately some of its proposed reductions and eliminations.highlighted separately some of its proposed reductions and eliminations.
requests $19.9 requests $19.9
The primary changes in the Administration’s request compared The primary changes in the Administration’s request compared
FY2020 include FY2020 include proposed reductions to the following: reductions to the following:
Foreign assistance (-$1.97 billion, -90%), mostly by eliminating funding for , mostly by eliminating funding for
Food for Peace Title II grants (-$1.73 Food for Peace Title II grants (-$1.73
International Food for Education (-$220 International Food for Education (-$220
Domestic nutrition assistance programs (-$1.06 billion), mostly from , mostly from
reductions to the WIC program (-$549 reductions to the WIC program (-$549
assistance program (-$264 assistance program (-$264
proposes rescinding more from unspent WIC balances than was done by the proposes rescinding more from unspent WIC balances than was done by the
enacted FY2020 General Provisions (-$200 enacted FY2020 General Provisions (-$200
Farm Production and Conservation mission area (-$200 million, -7%), ,
mostly from defunding watershed programs that are mostly from defunding watershed programs that are
the Administration. the Administration.
Agricultural research agencies (-$151 million net, -4%), including from the , including from the
Agricultural Research Service (ARS) facilities (-$143 Agricultural Research Service (ARS) facilities (-$143
salaries and expenses (-$46 salaries and expenses (-$46
increase competitive research (+$175 increase competitive research (+$175
of Chief Scientist (+$6 of Chief Scientist (+$6
Rural development (-$130 million), from reductions to rural business , from reductions to rural business
development programs (-$95 development programs (-$95
the Administrationthe Administration
Table 3 provides details of the provides details of the
titles of the titles of the
28,293.8 28,293.8
28,646.0 28,646.0
— —
27,240.0
28,646.0
— —
Rural Business-Cooperative Rural Business-Cooperative
98.6 98.6
105.0 105.0
20.5 20.5
110.4 110.4
98.2 98.2
— —
RBCS Loan RBCS Loan
1,026.4 1,026.4
1,088.9 1,088.9
1,000.0 1,000.0
1,500.0
1,088.9
— —
+ +
+ +
CRS- CRS-
link to page link to page
FY2019
FY2020
FY2021
Change:
P.L. 116-
COVID-
Admin.
House-
House-
Senate Agency or major program
P.L. 116-6
19 Actsa
Enacted
Rural Utilities Rural Utilities
620. 620.2g
750. 750.3g
25.0 25.0
942.6 942.6
— —
RUS Loan RUS Loan
8,419.9 8,419.9
8,401.2 8,401.2
— —
7,518.3
8,401.2
— —
+0. +0.
Under Secretar Under Secretaryh
—h
0.8 0.8
— —
1.0 1.0
0.8 0.8
— —
+0. +0.
+0.0 +0.0
Subtotal,
3,011
3,240
45.5g
3,410.5
3,
— —
+
-
Subtotal, RD Loan Subtotal, RD Loan
37,740.0 37,740.0
38,136.1 38,136.1
1,000.0 1,000.0
36,258.3 36,258.3
38,136.1 38,136.1
—
+ +
Title IV. Domestic Food Programs
Child Nutrition Programs (M) Child Nutrition Programs (M)
23,140.8 23,140.8
23,615.1 23,615.1
8,800.0 8,800.0
25,040.9 25,040.9
25,131.4 25,131.4
— —
+1, +1,
+1, +1,
WIC Program WIC Program
6,075.0 6,075.0
6,000.0 6,000.0
500.0 500.0
5,451.5 5,451.5
5,750.0 5,750.0
— —
- -
SNAP, Food and Nutrition Act Programs SNAP, Food and Nutrition Act Programs
73,476.9 73,476.9
67,886.3 67,886.3
15,910. 15,910.0i
68,281.4 68,281.4
68, 68,
322.1 322.1
344.2 344.2
850.0 850.0
80.7 80.7
390.7 390.7
— —
+ +
Nutrition Programs Nutrition Programs
164.7 164.7
155.9 155.9
— —
155.3 155.3
156.4 156.4
— —
Under Secretary Under Secretary
0.8 0.8
0.8 0.8
— —
0.8 0.8
0.8 0.8
— —
+0.0 +0.0
+0.0 +0.0
Subtotal,
Discretionary
6,620.3
6,566.0
1,350.0
5,700.7
6,383.3
— —
-
Mandatory (M) Mandatory (M)
96,560.0 96,560.0
91,436.3 91,436.3
24,710.0 24,710.0
93,309.8
Subtotal Subtotal
103,180.3 103,180.3
98,002.3 98,002.3
26,060.0 26,060.0
99,010.5 99,010.5
Title V. Foreign Assistance
Foreign Agricultural Foreign Agricultural
213.9 213.9
215.5 215.5
4.0 4.0
193.7 193.7
222.2 222.2
Food for Peace Title II, and admin. expenses Food for Peace Title II, and admin. expenses
1,500. 1,500.1g
1,725.1 1,725.1
— —
0.1 0.1
1,775.1 1,775.1
— —
+ +
McGovern-Dole McGovern-Dole
210.3 210.3
220.0 220.0
— —
0.0 0.0
235.0 235.0
— —
+ +
CCC Export Loan Salaries CCC Export Loan Salaries
8.8 8.8
6.4 6.4
— —
6.4 6.4
6.4 6.4
— —
+0.0 +0.0
+0.0 +0.0
Office of Codex Alimentarius Office of Codex Alimentarius
4.0 4.0
4.8 4.8
— —
4.8 4.8
4.8 4.8
— —
+0.0 +0.0
+0.0 +0.0
CRS- CRS-
link to page link to page
FY2019
FY2020
FY2021
Change:
P.L. 116-
COVID-
Admin.
House-
House-
Senate Agency or major program
P.L. 116-6
19 Actsa
Enacted
Under Secretary Under Secretary
0.9 0.9
0.9 0.9
— —
0.9 0.9
0.9 0.9
— —
+0.0 +0.0
+0.0 +0.0
Subtotal,
1,938.0
2,172.7
4.0
205.9
2,244.4
Title VI. Related
Food and Drug Administration Food and Drug Administration
3,080.5 3,080.5
3,171.5 3,171.5
163.0 163.0
3,220.4 3,220.4
3, 3,
— —
+ +
+40. +40.
Commodity Commodity
[268.0] [268.0]
315.0 315.0
— —
226.5 226.5
304.0 304.0
— —
- -
-11.0 -11.0
Subtotal,
[3,348.5]
3,486.5
163.0
3,446.9
3,
Title VII. General Provisions
Changes
a. Conservation programs a. Conservation programs
[-60.2 [-60.2]l
-60.2 -60.2
— —
-60.2 -60.2
-60.2 -60.2
— —
+0.0 +0.0
+0.0 +0.0
b. Nutrition programs b. Nutrition programs
+5.0 +5.0
+9.0 +9.0
— —
+0.0 +0.0
+12.0 +12.0
— —
+ +
c. Farm Production & Conservation Bus. Ctr. c. Farm Production & Conservation Bus. Ctr.
[+60.2 [+60.2]l
+60.2 +60.2
— —
+60.2 +60.2
+60.2 +60.2
— —
+0.0 +0.0
+0.0 +0.0
d. Other CHIMPS and mandatory rescissions d. Other CHIMPS and mandatory rescissions
+10.0 +10.0
— —
— —
— —
— —
— —
— —
— —
— —
Subtotal,
+15.0
+9.0
— —
+0.0
+12.0
— —
+
Rescissions (discretionary)m (Table B-2)
-505.0
-1,015.1
— —
-1,200.0
-1,000.0
— —
+
Other appropriations
a. Emergency/disaster a. Emergency/disaster
— —
535. 535.0n
— —
— —
— —
— —
— —
-535.0 -535.0
-535.0 -535.0
b. Water and Waste Water b. Water and Waste Water
75.0 75.0
— —
— —
— —
— —
— —
— —
— —
— —
c. Broadband pilo c. Broadband piloto
125.0 125.0
300.0 300.0
100.0 100.0
0. 0.0o
915.0 915.0
— —
+ +
d. Food for Peace d. Food for Peace
216.0 216.0
— —
— —
— —
— —
— —
— —
— —
— —
e. Coronavirus Food Assistance Program e. Coronavirus Food Assistance Program
— —
— —
12,500. 12,500.0p
— —
— —
— —
— —
— —
— —
f. Other appropriations f. Other appropriations
77.5 77.5
140.3 140.3
— —
— —
— —
- -
Subtotal,
493.5
975.3
12,600.0
0.0
1,
Subtotal,
3.5
-30.8
12,600.0
-1,200.0
— —
CRS- CRS-
link to page link to page
FY2019
FY2020
FY2021
Change:
P.L. 116-
COVID-
Admin.
House-
House-
Senate Agency or major program
P.L. 116-6
19 Actsa
Enacted
Scorekeeping
Table B-4Table B-4) Emergency declaration in this bil Emergency declaration in this bil
— —
-535. -535.0n
—a
— —
— —
— —
— —
+535.0 +535.0
+535.0 +535.0
Other scorekeeping Other scorekeeping
-404.0 -404.0
-398.0 -398.0
— —
-424.0 -424.0
-421.0 -421.0
— —
- -
-23.0 -23.0
Subtotal,
-404.0
-933.0
— —
-424.0
-421.0
— —
+
+512.0
Totals
Discretionary: Senate basis w/o
23,032.7 [23,169.1]
14,299.3
19,680.2 [23,
Discretionary: House basis w/
[23,300.7]
23,484.1
14,299.3
19,906.7
23,
—
Mandatory (M) Mandatory (M)
128,755.1 128,755.1
129,108.8 129,108.8
38,710.0 38,710.0
128,939.3 128,939.3
Total: Senate basis w/o CFTC Total: Senate basis w/o CFTC
151,787.8 [152,278.0] 151,787.8 [152,278.0]
53,009.3 53,009.3
148,619.4 [ 148,619.4 [
Total: House basis w/ CFTC Total: House basis w/ CFTC
[152,055.8] [152,055.8]
152,593.0 152,593.0
53,009.3 53,009.3
148,845.9 148,845.9
Source: CRS, using appropriations text and reports CRS, using appropriations text and reports
Notes: Amounts are nominal discretionary budget authority in mil ions Amounts are nominal discretionary budget authority in mil ions
primarilyprimarily
a. Total from four coronavirus supplemental appropriations acts (P.L. 116-123, P.L. 116-127, P.L. 116-136, P.L. 116-139), a. Total from four coronavirus supplemental appropriations acts (P.L. 116-123, P.L. 116-127, P.L. 116-136, P.L. 116-139),
Although amounts were not designated as mandatory, they are grouped here for comparison Although amounts were not designated as mandatory, they are grouped here for comparison
Focus IF11491, Focus IF11491, Supplemental
b. The request is based on current law and does not reflect the Administration’s b. The request is based on current law and does not reflect the Administration’s
c. Includes regular FSA salariesc. Includes regular FSA salaries
State Mediation Grants, Dairy Indemnity Program (mandatory funding), and Grassroots State Mediation Grants, Dairy Indemnity Program (mandatory funding), and Grassroots
Foreign AgriculturalForeign Agricultural
d. Loan authority is the amount of loans that can be made or guaranteed with a loan subsidy. This amount is not added in the budget authority subtotals or totals. d. Loan authority is the amount of loans that can be made or guaranteed with a loan subsidy. This amount is not added in the budget authority subtotals or totals.
e. The CARES Act (P.L. 116-136) provided $14 bil ion of reimbursemente. The CARES Act (P.L. 116-136) provided $14 bil ion of reimbursement
direct coronavirus support and not counted in CARES Act accounting, it is comparable to the CCC reimbursement direct coronavirus support and not counted in CARES Act accounting, it is comparable to the CCC reimbursement
f. f.
Rural Development Rural Development
thereforetherefore
CRS-19 link to page 32 link to page 32 g. Excludes a portion of the other appropriations that are provided separately in Generalg. Excludes a portion of the other appropriations that are provided separately in General
previously previously
i. i.
In addition to the specified In addition to the specified
127, §1101) authorized and appropriated open-ended funding for the Pandemic Electronic Benefit Transfer (P-EBT) program.127, §1101) authorized and appropriated open-ended funding for the Pandemic Electronic Benefit Transfer (P-EBT) program.
the P-EBT funding.the P-EBT funding.
j. j.
Jurisdiction for the Commodity Jurisdiction for the Commodity
Appropriations Subcommittee.Appropriations Subcommittee.
AgricultureAgriculture
to differing House-Senate jurisdictionto differing House-Senate jurisdiction
k. Includes reductions (limitations and rescissions) k. Includes reductions (limitations and rescissions)
l. l.
These bracketed amounts were These bracketed amounts were
into the Farm Production and Conservation Businessinto the Farm Production and Conservation Business
the FY2020 scoring reflects.the FY2020 scoring reflects.
m. Rescissions m. Rescissions
mandatory programs mandatory programs
n. Emergency appropriations in FY2020 include $535 mil ion n. Emergency appropriations in FY2020 include $535 mil ion
bil ion in rescissions bil ion in rescissions
. o. The ReConnect Broadband Pilot Program that was created in the FY2018 appropriation has been funded by separate appropriation o. The ReConnect Broadband Pilot Program that was created in the FY2018 appropriation has been funded by separate appropriation
FY2019 and FY2020 it is augmented by a transfer from the Cushion of Credit account that is available outside the appropriations caps. For example, in FY2020, FY2019 and FY2020 it is augmented by a transfer from the Cushion of Credit account that is available outside the appropriations caps. For example, in FY2020,
appropriators direct $555 mil ionappropriators direct $555 mil ion
FY2021, the AdministrationFY2021, the Administration
p. Includes $9.5 bil ion specified p. Includes $9.5 bil ion specified
USDA used for the Farmers USDA used for the Farmers
q. q.
score (accounting) of the bil . They predominantly include “negative subsidies” score (accounting) of the bil . They predominantly include “negative subsidies”
emergencyemergency
CRS- CRS-
Agriculture and Related Agencies: FY2021 Appropriations
Other Appropriations Issues
Policy-Related Provisions
Besides setting spending authority, appropriations acts are also a vehicle for policy-related Besides setting spending authority, appropriations acts are also a vehicle for policy-related
provisions that direct executive branch actions.provisions that direct executive branch actions.
the force of law if they are included in the act’s text, but their effect is the force of law if they are included in the act’s text, but their effect is
current fiscal year unless they amend the current fiscal year unless they amend the U.S. Code, which is rare in appropriations acts. , which is rare in appropriations acts.
Report language may also provide policy instructions. Although report language does not carry Report language may also provide policy instructions. Although report language does not carry
the force of text in an act, it often explains congressional intent, which the agencies may be the force of text in an act, it often explains congressional intent, which the agencies may be
expected to follow. expected to follow.
In the past, Congress has said that committee reports and the joint explanatory statement need to In the past, Congress has said that committee reports and the joint explanatory statement need to
be read together to capture be read together to capture
explanatory statement for the FY2020 Further Consolidated Appropriations act instructs that the explanatory statement for the FY2020 Further Consolidated Appropriations act instructs that the
earlier House and Senate reports should be read together with the conference agreement: earlier House and Senate reports should be read together with the conference agreement:
Congressional
unchanged by this agreement, except as noted in this statement. unchanged by this agreement, except as noted in this statement.
The House and Senate report language that is not changed by the statement is approved The House and Senate report language that is not changed by the statement is approved
and indicatesand indicates
expressly provided herein.expressly provided herein.
46 COVID-19 Supplemental Appropriations in FY2020
In March and April 2020, Congress passed and the President signed four supplemental In March and April 2020, Congress passed and the President signed four supplemental
appropriations acts in response to the novel coronavirus pandemic—designated Coronavirus appropriations acts in response to the novel coronavirus pandemic—designated Coronavirus
Disease 2019, or COVID-19.Disease 2019, or COVID-19.
jurisdiction of the Agriculture appropriations subcommittees. The four acts are:jurisdiction of the Agriculture appropriations subcommittees. The four acts are:
1. Coronavirus Preparedness and Response Supplemental Appropriations Act (P.L. 1. Coronavirus Preparedness and Response Supplemental Appropriations Act (P.L.
116-123, March 6, 2020); 116-123, March 6, 2020);
2. Families 2. Families
3. CARES Act (P.L. 116-136, March 27, 2020); and 3. CARES Act (P.L. 116-136, March 27, 2020); and
4. Paycheck Protection Program and Health Care Enhancement Act (P.L. 116-139, 4. Paycheck Protection Program and Health Care Enhancement Act (P.L. 116-139,
April 27, 2020). April 27, 2020).
These acts together specify $36 These acts together specify $36
Agriculture appropriations subcommittees. In addition, the second act authorized indefinite Agriculture appropriations subcommittees. In addition, the second act authorized indefinite
funding for commodity food assistance, from which the USDA has announced that it would funding for commodity food assistance, from which the USDA has announced that it would
obligate $3 obligate $3
print, 116th Cong., 2nd Sess.,print, 116th Cong., 2nd Sess.,
USDA’s Coronavirus Food Assistance Program (CFAP). .
Congressional Research Service Congressional Research Service
link to page 7 link to page link to page 7 link to page
that, while not immediately that, while not immediately
comparable to the regular CCC reimbursements in annual Agriculture appropriations acts and is comparable to the regular CCC reimbursements in annual Agriculture appropriations acts and is
included in this report. included in this report.
Columns labeled Columns labeled
these combined $53 these combined $53
this spending is designated as emergency spending and not counted against budget caps. Congressional Research Service 22 link to page 29 link to page 29
Appendix A. Appropriations in Administrative Accounts
Table A-1. USDA Departmental Administration Appropriations
Budget authority in Budget authority in
FY2019
FY2020
FY2021
Change:
P.L. 116-
COVID-
Admin.
House-
House-
Senate Agency or major program
P.L. 116-6 94
19 Acts
request
Enacted
Office of the Secretary
Office of the Secretary Office of the Secretary
5.1 5.1
5.1 5.1
— —
5.1 5.1
5.1 5.1
— —
+0.1 +0.1
+0.1 +0.1
Assistant to the Sec. for Rural Developmen Assistant to the Sec. for Rural Developmenta
0.8 0.8
— —
Office of Homeland Security Office of Homeland Security
1.5 1.5
1.5 1.5
— —
1.3 1.3
1.3 1.3
— —
-0.2 -0.2
-0.2 -0.2
Public Partnership and Engagemen Public Partnership and Engagementb
4.7 4.7
6.2 6.2
— —
2.0 2.0
6.5 6.5
— —
+0. +0.
Assistant Secretary for Admin. Assistant Secretary for Admin.
0.9 0.9
0.9 0.9
— —
0.9 0.9
0.9 0.9
— —
+0.0 +0.0
+0.0 +0.0
Departmental Administration Departmental Administration
22.3 22.3
21.4 21.4
— —
27.2 27.2
— —
+ +
Asst. Sec. Asst. Sec.
3.9 3.9
3.9 3.9
— —
3.9 3.9
3.9 3.9
— —
+0.1 +0.1
+0.1 +0.1
Office of Communications Office of Communications
7.5 7.5
7.3 7.3
— —
7.4 7.4
7.4 7.4
— —
+0.1 +0.1
+0.1 +0.1
Subtotal
46.6
46.1
— —
47.8
— —
+
Executive Operations
Office of Chief Economist Office of Chief Economist
21.3 21.3
24.0 24.0
— —
20.9 20.9
21.3 21.3
— —
- -
Office of Hearings and Appeals Office of Hearings and Appeals
15.2 15.2
15.2 15.2
— —
15.5 15.5
15.4 15.4
— —
+0. +0.
+0.2 +0.2
Office of Budget, Program Analysis Office of Budget, Program Analysis
9.5 9.5
9.5 9.5
— —
20.7 20.7
9.7 9.7
— —
+ +
+0.1 +0.1
Subtotal
46.0
48.8
— —
57.1
46.4
— —
Other Administration
Chief Information Officer Chief Information Officer
55.6 55.6
66.6 66.6
— —
142.8 142.8
— —
+ +
Chief Financial Officer Chief Financial Officer
6.0 6.0
6.0 6.0
— —
11.1 11.1
6.1 6.1
— —
+ +
+0.1 +0.1
CRS- CRS-
FY2019
FY2020
FY2021
Change:
P.L. 116-
COVID-
Admin.
House-
House-
Senate Agency or major program
P.L. 116-6 94
19 Acts
request
Enacted
Assistant Secretary for Civil Rights Assistant Secretary for Civil Rights
0.9 0.9
0.9 0.9
— —
0.9 0.9
0.9 0.9
— —
+0.0 +0.0
+0.0 +0.0
Office of Civil Rights Office of Civil Rights
24.2 24.2
24.2 24.2
— —
20.6 20.6
22.9 22.9
— —
- -
Office of Safety, Security, Office of Safety, Security,
— —
— —
— —
25.0 25.0
23.2 23.2
— —
+ +
Buildings and facilities Buildings and facilities
60.0 60.0
128.2 128.2
— —
152.8 152.8
Hazardous materials Hazardous materials
3.5 3.5
4.5 4.5
— —
3.5 3.5
7.5 7.5
— —
+ +
Office of Inspector General Office of Inspector General
98.2 98.2
98.2 98.2
— —
100.4 100.4
— —
+2. +2.
+1.6 +1.6
General General
45.1 45.1
45.1 45.1
0.8 0.8
45.9 45.9
— —
+0. +0.
Office of Information Affairs Office of Information Affairs
— —
— —
— —
2.5 2.5
— —
— —
— —
— —
Office of Ethics Office of Ethics
4.1 4.1
4.1 4.1
— —
4.2 4.2
4.2 4.2
— —
+0.1 +0.1
+0.1 +0.1
Subtotal
297.7
377.9
0.8
509.8
Total, Departmental
390.4
472.8
0.8
614.7
Source: CRS, using appropriations text and reports CRS, using appropriations text and reports
a. The USDA-initiated reorganization in 2017 created an “Assistant to the Secretary for Rural Development”a. The USDA-initiated reorganization in 2017 created an “Assistant to the Secretary for Rural Development”
previously previously
b. Formerly, b. Formerly,
CRS- CRS-
link to page link to page
Appendix B. Appropriations in General Provisions
Table B-1. General Provisions: Changes in Mandatory Program Spending (CHIMPS)
Budget authority in Budget authority in
FY2019
FY2020
FY2021
Change:
P.L. 116-
COVID-
Admin.
House-
House-
Senate CHIMPS and mandatory rescissions
P.L. 116-6
19 Acts
request
Enacted
Farm bill programs
Farm Security Rural Investment Act Farm Security Rural Investment Act
conservation programs conservation programs
[-60.2 [-60.2]a
-60.2 -60.2
— —
-60.2 -60.2
-60.2 -60.2
— —
+0.0 +0.0
+0.0 +0.0
Farm to School Farm to School
+5.0 +5.0
+9.0 +9.0
— —
— —
+12.0 +12.0
— —
+ +
Subtotal,
+5.0
-51.2
— —
-60.2
-48.2
— —
+
Other CHIMPS
Farm Production & Conservation (FPAC) Farm Production & Conservation (FPAC)
BusinessBusiness
[+60.2 [+60.2]a
+60.2 +60.2
— —
+60.2 +60.2
+60.2 +60.2
— —
+0.0 +0.0
+0.0 +0.0
Food for Progress Food for Progress
+10.0 +10.0
— —
— —
— —
— —
— —
— —
— —
— —
Total CHIMPS
+15.0
+9.0
— —
+0.0
+12.0
— —
+
Source: CRS, using appropriations text and reports CRS, using appropriations text and reports
a. Amounts in brackets were not in the official CBO scoring of CHIMPS. The FY2019 appropriations act transferred mandatory conservation funding into the Farm a. Amounts in brackets were not in the official CBO scoring of CHIMPS. The FY2019 appropriations act transferred mandatory conservation funding into the Farm
Production and Conservation Business Production and Conservation Business
scoring reflects.scoring reflects.
CRS- CRS-
Table B-2. General Provisions: Rescissions from Discretionary Accounts
Budget authority in Budget authority in
FY2019
FY2020
FY2021
Change:
P.L. 116-
COVID-
Admin.
House-
House-
Senate Rescissions from discretionary accounts
P.L. 116-6
19 Acts
request
Enacted
Special Supplemental Nutrition Program for Special Supplemental Nutrition Program for
Women,Women,
-500.0 -500.0
-1,000.0 -1,000.0
— —
-1,200.0 -1,200.0
-1,000.0 -1,000.0
— —
+ +
Electric loan refinancing Electric loan refinancing
— —
-15.1 -15.1
— —
— —
— —
— —
— —
+15.1 +15.1
+15.1 +15.1
USDA unobligated balances USDA unobligated balances
-5.0 -5.0
— —
— —
— —
— —
— —
— —
— —
— —
Total
-505.0
-1,015.1
— —
-1,200.0
-1,000.0
— —
+
Source: CRS, using appropriations text and reports CRS, using appropriations text and reports
Table B-3. General Provisions: Other Appropriations
Budget authority in Budget authority in
FY2019
FY2020
FY2021
Change:
P.L. 116-
COVID-
Admin.
House-
House-
Senate Program
P.L. 116-6
19 Acts
request
Enacted
FDA buildings and facilities FDA buildings and facilities
— —
20.0 20.0
— —
— —
— —
— —
— —
-20.0 -20.0
-20.0 -20.0
Goodfel ow facility — — — — — 58.4 — — +58.4 Coronavirus Food Assistance Program Coronavirus Food Assistance Program
— —
— —
12,500. 12,500.0a
— —
— —
— —
— —
— —
— —
Agriculture Agriculture
5.0 5.0
— —
— —
— —
— —
— —
— —
— —
— —
Dairy Innovation Dairy Innovation
— —
20.0 20.0
— —
— —
— —
- -
Mitigation banking Mitigation banking
— —
5.0 5.0
— —
— —
— —
— —
-5.0 -5.0
Conservation Reserve Conservation Reserve
1.0 1.0
1.0 1.0
— —
— —
— —
— —
— —
-1.0 -1.0
-1.0 -1.0
Citrus greening Citrus greening
8.5 8.5
8.5 8.5
— —
— —
8.5 8.5
— —
+0.0 +0.0
Protecting Animals Protecting Animals
— —
2.0 2.0
— —
— —
3.0 3.0
— —
+ +
— —
— —
— —
— —
— —
2.0 2.0
2.0 2.0
— —
— —
2.0 2.0
— —
+0.0 +0.0
Farming Opportunities Training and Outreach Farming Opportunities Training and Outreach
— —
5.0 5.0
— —
— —
5.0 5.0
— —
+0.0 +0.0
Water Bank Water Bank
4.0 4.0
4.0 4.0
— —
— —
— —
— —
-4.0 -4.0
Rural Energy Savings Program Rural Energy Savings Program
10.0 10.0
12.0 12.0
— —
— —
12.0 12.0
— —
Agriculture Agriculture
— —
— —
— —
— —
2.0 2.0
— —
— —
— Renewable Energy Renewable Energy
— —
— —
— —
— —
10.0 10.0
— —
— —
— Maturing mortgage pilot Maturing mortgage pilot
1.0 1.0
1.0 1.0
— —
— —
— —
— —
-1.0 -1.0
Rural microentrepreneur Rural microentrepreneur
3.0 3.0
— —
— —
— —
— —
— —
— —
— —
— —
Water and Waste Water Water and Waste Water
75.0 75.0
— —
— —
— —
— —
— —
— —
— —
— — CRS-27 link to page 34 link to page 34 FY2019 FY2020 FY2021 Change: FY2020 to... P.L. 116- COVID- Admin. House- Senate House- Senate Program P.L. 116-6 94 19 Acts request passed draft Enacted passed draft
Waste water pilot Waste water pilot
— —
5.0 5.0
— —
— —
— —
— —
-5.0 -5.0
Broadband pilo Broadband pilotb
125.0 125.0
300.0 300.0
100.0 100.0
—b
915.0 915.0
— —
+ +
Distance Learning Telemedicine Distance Learning Telemedicine
16.0 16.0
— —
— —
— —
— —
— —
— —
— —
— —
Rural Hospital Technical Assistance Rural Hospital Technical Assistance
— —
1.0 1.0
— —
— —
2.0 2.0
— —
— —
Tribal Demonstration Tribal Demonstration
— —
3.0 3.0
— —
— —
3.0 3.0
— —
+0.0 +0.0
Healthy Food Financing Initiative Healthy Food Financing Initiative
2.0 2.0
5.0 5.0
— —
— —
5.0 5.0
— —
+0.0 +0.0
Healthy Fluid Milk Healthy Fluid Milk
— —
1.0 1.0
— —
— —
1.0 1.0
— —
+0.0 +0.0
RISE grants RISE grants
— —
5.0 5.0
— —
— —
— —
— —
-5.0 -5.0
NIFA military NIFA military
5.0 5.0
5.0 5.0
— —
— —
5.0 5.0
— —
+0.0 +0.0
Genome Genome
— —
1.0 1.0
— —
— —
1.0 1.0
— —
+0.0 +0.0
NIFA 1890 land grants, Centers of NIFA 1890 land grants, Centers of
5.0 5.0
6.0 6.0
— —
— —
14.0 14.0
— —
— —
Tribal Student Scholarships Tribal Student Scholarships
— —
5.0 5.0
— —
— —
5.0 5.0
— —
+0.0 +0.0
International Agriculture Education International Agriculture Education
— —
1.0 1.0
— —
— —
1.0 1.0
— —
+0.0 +0.0
Food Loss Liaison Food Loss Liaison
— —
0.4 0.4
— —
— —
0.5 0.5
— —
— —
Food for Peace Food for Peace
216.0 216.0
— —
— —
— —
— —
— —
— —
— —
— —
Food for Progress Food for Progress
6.0 6.0
— —
— —
— —
— —
— —
— —
— —
— —
— —
6.0 6.0
— —
— —
— —
— —
— —
-6.0 -6.0
-6.0 -6.0
Micro-grants for Food Security Micro-grants for Food Security
— —
5.0 5.0
— —
— —
— —
+0.0 +0.0
School breakfast expansion School breakfast expansion
— —
5.0 5.0
— —
— —
15.0 15.0
— —
— —
493.5
440.3
12,600.0
0.0
1,
— —
Disaster/Emergency programs
Ebola prevention and treatment Ebola prevention and treatment
— —
+535.0 +535.0
— —
— —
— —
— —
— —
-535.0 -535.0
-535.0 -535.0
Rescission Rescission
— —
-1,500.0 -1,500.0
— —
— —
— —
— —
— —
+1,500.0 +1,500.0
+1,500.0 +1,500.0
WHIP (Wildfire, WHIP (Wildfire,
— —
+1,500.0 +1,500.0
— —
— —
— —
— —
— —
-1,500.0 -1,500.0
-1,500.0 -1,500.0
Subtotal,
— —
+535
— —
— —
— —
— —
— —
-535.0
-535.0
Total
493.5
975
12,600.0
0.0
1,
Source: CRS, using appropriations text and reports CRS, using appropriations text and reports
Note: Excludes supplemental appropriations outside the annual appropriations act. Excludes supplemental appropriations outside the annual appropriations act.
a. Includes $9.5 bil ion specifieda. Includes $9.5 bil ion specified
USDA used for the Farmers USDA used for the Farmers
b. The ReConnect Broadband Pilot Program that was created in the FY2018 appropriation has been funded by separate appropriation in the General Provisions b. The ReConnect Broadband Pilot Program that was created in the FY2018 appropriation has been funded by separate appropriation in the General Provisions
FY2019 and FY2020 it is augmented by a transfer from the Cushion of Credit account that is available FY2019 and FY2020 it is augmented by a transfer from the Cushion of Credit account that is available
appropriators direct $555 mil ionappropriators direct $555 mil ion
FY2021, the AdministrationFY2021, the Administration
c. Appropriations designated as emergency spending in FY2020 and are not counted against the discretionary spending limit c. Appropriations designated as emergency spending in FY2020 and are not counted against the discretionary spending limit
bil ion for WHIP, which was offset with $1.5 bil ion in rescissions bil ion for WHIP, which was offset with $1.5 bil ion in rescissions
. CRS- CRS-
link to page link to page
Table B-4. General Provisions: Scorekeeping Adjustments
Budget authority in Budget authority in
FY2019
FY2020
FY2021
Change:
P.L. 116-
COVID-
Admin.
House-
House-
P.L. 116-6
19 Acts
Enacted
Loan program negative
Rural housing negative subsidy Rural housing negative subsidy
-135.0 -135.0
-125.0 -125.0
— —
-130.0 -130.0
-130.0 -130.0
— —
-5.0 -5.0
-5.0 -5.0
Rural community facilities Rural community facilities
-72.0 -72.0
-72.0 -72.0
— —
-88.0 -88.0
-88.0 -88.0
— —
-16.0 -16.0
-16.0 -16.0
Rural elec. Rural elec.
-173.0 -173.0
-176.0 -176.0
— —
-175.0 -175.0
-175.0 -175.0
— —
+1.0 +1.0
+1.0 +1.0
Rural water & waste loan negative subsidy Rural water & waste loan negative subsidy
-2.0 -2.0
-3.0 -3.0
— —
-2.0 -2.0
-2.0 -2.0
— —
+1.0 +1.0
+1.0 +1.0
Ag credit loan negative subsidy Ag credit loan negative subsidy
-23.0 -23.0
-23.0 -23.0
— —
-27.0 -27.0
-27.0 -27.0
— —
-4.0 -4.0
-4.0 -4.0
Subtotal,
-405.0
-399.0
— —
-422.0
-422.0
— —
-23.0
-23.0
Denali Commission Denali Commission
— —
— —
— —
-2.0 -2.0
— —
— —
— —
+0.0 +0.0
Child nutrition equipment grants Child nutrition equipment grants
1.0 1.0
1.0 1.0
— —
— —
1.0 1.0
— —
+0.0 +0.0
Emergency designations not counted in Emergency designations not counted in
— —
-535. -535.
—
— —
— —
— —
— —
+535.0 +535.0
+535.0 +535.0
Total
-404.0
-933.0
— —
-424.0
-421.0
— —
+
+512.0
Source: CRS, using CRS, using
Than a Fair Value Approach,” GAO-16-41, January 2016, p. 8).Than a Fair Value Approach,” GAO-16-41, January 2016, p. 8).
which was offset with $1.5 bil ion in rescissions which was offset with $1.5 bil ion in rescissions
budget constraint. budget constraint.
CRS- CRS-
link to page link to page
Appendix C. Budget Sequestration
Sequestration is a process to reduce federal spending through automatic, largely across-the-board Sequestration is a process to reduce federal spending through automatic, largely across-the-board
reductions that permanently cancel mandatory and/or discretionary budget authority.reductions that permanently cancel mandatory and/or discretionary budget authority.
sequestration rate is the percentage reduction that is subtracted from an appropriated budget sequestration rate is the percentage reduction that is subtracted from an appropriated budget
authority to achieve an intended budget goal. authority to achieve an intended budget goal.
Sequestration is triggered as a budget enforcement mechanism when federal spending exceeds Sequestration is triggered as a budget enforcement mechanism when federal spending exceeds
statutory budget goals.statutory budget goals.
P.L. 112-25). For discretionary accounts, sequestration continues through FY2021. For mandatory P.L. 112-25). For discretionary accounts, sequestration continues through FY2021. For mandatory
accounts, Congress amended the BCA to continue sequestration through FY2029. accounts, Congress amended the BCA to continue sequestration through FY2029.
OMB computes sequestration rates OMB computes sequestration rates
been announced and the total amounts of budget authority that have been been announced and the total amounts of budget authority that have been
in Agriculture appropriations. in Agriculture appropriations.
Table C-1. Summary of Sequestration on Agriculture Accounts
( (
Budget
Authority
Sequestered
Sequestration
Subject to
Budget
Fiscal Year
Ratea
Sequestrationb
Authorityb
Discretionary Spending
2013 2013
5.0% 5.0%
23,064 23,064
1,153 1,153
Mandatory Spending
2013 2013
5.1% 5.1%
13,987 13,987
713 713
2014 2014
7.2% 7.2%
14,610 14,610
1,052 1,052
2015 2015
7.3% 7.3%
15,795 15,795
1,153 1,153
2016 2016
6.8% 6.8%
26,748 26,748
1,819 1,819
2017 2017
6.9% 6.9%
24,429 24,429
1,686 1,686
2018 2018
6.6% 6.6%
19,938 19,938
1,316 1,316
2019 2019
6.2% 6.2%
24,682 24,682
1,530 1,530
2020 2020
5.9% 5.9%
23,352 23,352
1,378 1,378
2021 2021
5.7% 5.7%
29,841 29,841
1,701 1,701
Source: CRS, compiled from OMB, CRS, compiled from OMB, Reports
AvailableAvailable
for FY2013-FY2017for FY2013-FY2017, at https://obamawhitehouse.archives.gov/omb/legislative_reports/sequestration. at https://obamawhitehouse.archives.gov/omb/legislative_reports/sequestration.
a. Sequestration rates listed here are for nonexempt, nondefense accounts as determineda. Sequestration rates listed here are for nonexempt, nondefense accounts as determined
b. Totals are computed by CRS for accounts and programsb. Totals are computed by CRS for accounts and programs
appropriations. appropriations.
Congressional Research Service Congressional Research Service
link to page link to page
Discretionary Spending
For discretionary spending, sequestration is authorized through FY2021 if discretionary defense For discretionary spending, sequestration is authorized through FY2021 if discretionary defense
and nondefense spending exceed caps that are specified in statute (2 U.S.C. §901(c)). and nondefense spending exceed caps that are specified in statute (2 U.S.C. §901(c)).
In FY2013, the timing of the appropriations acts and the first year of sequestration resulted in In FY2013, the timing of the appropriations acts and the first year of sequestration resulted in
triggering sequestration on discretionary spending. triggering sequestration on discretionary spending.
In FY2014-FY2020, BBAs In FY2014-FY2020, BBAs
123, and P.L. 116-37, respectively) have avoided sequestration on discretionary spending. These 123, and P.L. 116-37, respectively) have avoided sequestration on discretionary spending. These
Congress to enact larger appropriations than would have been Congress to enact larger appropriations than would have been
appropriations in FY2014-FY2020 met the spending limitations of the revised budget caps, and appropriations in FY2014-FY2020 met the spending limitations of the revised budget caps, and
therefore no sequestration on discretionary accounts was necessary. therefore no sequestration on discretionary accounts was necessary.
For FY2021, the BBA For FY2021, the BBA
may avoid sequestration (see may avoid sequestration (see “Budget Caps
Mandatory Spending
Sequestration Occurs and Continues
For mandatory spending, sequestration is presently authorized and scheduled to continue through For mandatory spending, sequestration is presently authorized and scheduled to continue through
FY2029, having been amended and extended by budget acts that were subsequent to the BCA (2 FY2029, having been amended and extended by budget acts that were subsequent to the BCA (2
U.S.C. §901a(6)). That is, sequestration of mandatory spending has not been avoided by the U.S.C. §901a(6)). That is, sequestration of mandatory spending has not been avoided by the
The original The original
times as an offset to pay for raising the caps on times as an offset to pay for raising the caps on discretionary spending to avoid sequestration in spending to avoid sequestration in
the near term (or as a general budgetary offset for other authorization acts): the near term (or as a general budgetary offset for other authorization acts):
1. Congress extended the duration of mandatory sequestration by two years (until 1. Congress extended the duration of mandatory sequestration by two years (until
FY2023) as an offset in BBA FY2023) as an offset in BBA
52 2. Congress extended it by another year (until FY2024) to maintain 2. Congress extended it by another year (until FY2024) to maintain
benefits for certain military personnel (P.L. 113-82). benefits for certain military personnel (P.L. 113-82).
3. Congress extended sequestration on nonexempt mandatory accounts another year 3. Congress extended sequestration on nonexempt mandatory accounts another year
(until FY2025) as an offset in BBA (until FY2025) as an offset in BBA
4. Congress extended sequestration on nonexempt mandatory accounts for two 4. Congress extended sequestration on nonexempt mandatory accounts for two
years (until FY2027) as an offset in BBA years (until FY2027) as an offset in BBA
54 5. Congress extended sequestration on nonexempt mandatory accounts by another 5. Congress extended sequestration on nonexempt mandatory accounts by another
two years (until FY2029) as an offset in BBA two years (until FY2029) as an offset in BBA
extending sequestration and related to mandatory spending in agriculture,extending sequestration and related to mandatory spending in agriculture,
budgetarybudgetary
more background,more background,
Agriculture and Related Agencies: FY2016 Appropriations. .
Congressional Research Service Congressional Research Service
link to page link to page
Exemptions from Sequestration
Some USDA mandatory programs are statutorily exempt from sequestration. Those expressly Some USDA mandatory programs are statutorily exempt from sequestration. Those expressly
exempt by statute are the nutrition programs (SNAP, the child nutrition programs, and the exempt by statute are the nutrition programs (SNAP, the child nutrition programs, and the
Commodity Supplemental Food Program)Commodity Supplemental Food Program)
legal obligations in the Federal Crop Insurance legal obligations in the Federal Crop Insurance
may be may be
insurance is exempt from sequestration, while the farm commodity programs, disaster assistance, insurance is exempt from sequestration, while the farm commodity programs, disaster assistance,
and most conservation programs have been subject to it.and most conservation programs have been subject to it.
Implementation of Sequestration
Nonexempt mandatory spending in FY2021 is to be reduced by a 5.7% sequestration Nonexempt mandatory spending in FY2021 is to be reduced by a 5.7% sequestration
C-1) and thus would be paid at 94.3% of what would otherwise have been provided. This is and thus would be paid at 94.3% of what would otherwise have been provided. This is
projected to result in a reduction of about $1.7 projected to result in a reduction of about $1.7
FY2021, including over $1.3 FY2021, including over $1.3
subject to sequestration.subject to sequestration.
For example, for the farm commodity programs that support farm income such as the Agricultural For example, for the farm commodity programs that support farm income such as the Agricultural
Risk Coverage and Price Loss Coverage programs,Risk Coverage and Price Loss Coverage programs,
regular formula authorized in the farm regular formula authorized in the farm
by the sequestration rate. For programs that operate on a fixed budget authority, such as the by the sequestration rate. For programs that operate on a fixed budget authority, such as the
Environmental Quality Incentives Program and the Market Assistance Program, the sequestration Environmental Quality Incentives Program and the Market Assistance Program, the sequestration
rate is applied to the availablerate is applied to the available
may have a relatively small sequestration-eligible amount compared to their total budget authority. may have a relatively small sequestration-eligible amount compared to their total budget authority.
case for the Federal Crop Insurance Corporation, SNAP, child nutrition programs, and WIC.case for the Federal Crop Insurance Corporation, SNAP, child nutrition programs, and WIC.
Congressional Research Service Congressional Research Service
Appendix D. Action on Agriculture Appropriations,
FY1996-FY2021
Table D-1. Congressional Action on Agriculture Appropriations Since FY1996
House Action
Senate Action
Final Appropriation
Fiscal
CRS
Year
Subcmte.
Cmte.
Floor
Subcmte.
Cmte.
Floor
Enacted
Public Law
Report
1996 1996
6/14/1995 6/14/1995
7/21/1995 7/21/1995
9/13/1995 9/13/1995
9/14/1995 9/14/1995
9/20/1995 9/20/1995
E P.L. 104-37 E P.L. 104-37
95-624 95-624
1997 1997
5/30/1996 5/30/1996
6/6/1996 6/6/1996
6/12/1996 6/12/1996
7/10/1996 7/10/1996
7/11/1996 7/11/1996
7/24/1996 7/24/1996
8/6/1996 8/6/1996
E P.L. 104-180 E P.L. 104-180
IB96015 IB96015
1998 1998
6/25/1997 6/25/1997
7/24/1997 7/24/1997
7/15/1997 7/15/1997
7/17/1997 7/17/1997
7/24/1997 7/24/1997
E P.L. 105-86 E P.L. 105-86
97-201 97-201
1999 1999
6/10/1998 6/10/1998
6/24/1998 6/24/1998
6/9/1998 6/9/1998
6/11/1998 6/11/1998
7/16/1998 7/16/1998
98-201 98-201
2000 2000
5/13/1999 5/13/1999
6/8/1999 6/8/1999
6/15/1999 6/15/1999
6/17/1999 6/17/1999
8/4/1999 8/4/1999
10/22/1999 10/22/1999
E P.L. 106-78 E P.L. 106-78
RL30201 RL30201
2001 2001
5/4/2000 5/4/2000
5/16/2000 5/16/2000
7/11/2000 7/11/2000
5/4/2000 5/4/2000
5/10/2000 5/10/2000
7/20/2000 7/20/2000
E P.L. 106-387 E P.L. 106-387
RL30501 RL30501
2002 2002
6/6/2001 6/6/2001
6/27/2001 6/27/2001
7/11/2001 7/11/2001
Pol ed out Pol ed out
7/18/2001 10/25/2001 11/28/2001 7/18/2001 10/25/2001 11/28/2001
E P.L. 107-76 E P.L. 107-76
RL31001 RL31001
2003 2003
6/26/2002 6/26/2002
— —
7/23/2002 7/23/2002
7/25/2002 7/25/2002
— —
2/20/2003 2/20/2003
O P.L. 108-7 O P.L. 108-7
RL31301 RL31301
2004 2004
6/17/2003 6/17/2003
7/9/2003 7/9/2003
7/14/2003 7/14/2003
7/17/2003 7/17/2003
11/6/2003 11/6/2003
11/6/2003 11/6/2003
1/23/2004 1/23/2004
O P.L. 108-199 O P.L. 108-199
RL31801 RL31801
2005 2005
6/14/2004 6/14/2004
7/7/2004 7/7/2004
7/13/2004 7/13/2004
9/8/2004 9/8/2004
9/14/2004 9/14/2004
— —
12/8/2004 12/8/2004
O P.L. 108-447 O P.L. 108-447
RL32301 RL32301
2006 2006
5/16/2005 5/16/2005
6/2/2005 6/2/2005
6/8/2005 6/8/2005
6/21/2005 6/21/2005
6/27/2005 6/27/2005
9/22/2005 9/22/2005
E P.L. 109-97 E P.L. 109-97
RL32904 RL32904
2007 2007
5/3/2006 5/3/2006
5/9/2006 5/9/2006
5/23/2006 5/23/2006
6/20/2006 6/20/2006
6/22/2006 6/22/2006
— —
2/15/2007 2/15/2007
Y P.L. 110-5 Y P.L. 110-5
RL33412 RL33412
2008 2008
7/12/2007 7/12/2007
8/2/2007 8/2/2007
7/17/2007 7/17/2007
7/19/2007 7/19/2007
— —
12/26/2007 O P.L. 110-161 12/26/2007 O P.L. 110-161
RL34132 RL34132
2009 2009
6/19/2008 6/19/2008
— —
— —
Pol ed out Pol ed out
7/17/2008 7/17/2008
— —
3/11/2009 3/11/2009
O P.L. 111-8 O P.L. 111-8
R40000 R40000
2010 2010
6/11/2009 6/11/2009
7/9/2009 7/9/2009
Pol ed out Pol ed out
7/7/2009 7/7/2009
8/4/2009 8/4/2009
10/21/2009 10/21/2009
E P.L. 111-80 E P.L. 111-80
R40721 R40721
2011 2011
6/30/2010 6/30/2010
— —
— —
Pol ed out Pol ed out
7/15/2010 7/15/2010
— —
4/15/2011 4/15/2011
Y P.L. 112-10 Y P.L. 112-10
R41475 R41475
2012 2012
5/24/2011 5/24/2011
6/16/2011 6/16/2011
Pol ed out Pol ed out
9/7/2011 9/7/2011
11/1/2011 11/1/2011
R41964 R41964
2013 2013
6/6/2012 6/6/2012
6/19/2012 6/19/2012
— —
Pol ed out Pol ed out
4/26/2012 4/26/2012
— —
3/26/2013 3/26/2013
O P.L. 113-6 O P.L. 113-6
R43110 R43110
2014 2014
6/5/2013 6/5/2013
6/13/2013 6/13/2013
— —
6/18/2013 6/18/2013
6/20/2013 6/20/2013
— —
1/17/2014 1/17/2014
O P.L. 113-76 O P.L. 113-76
R43110 R43110
2015 2015
5/20/2014 5/20/2014
— —
5/20/2014 5/20/2014
5/22/2014 5/22/2014
— —
12/16/2014 O P.L. 113-235 12/16/2014 O P.L. 113-235
R43669 R43669
2016 2016
6/18/2015 6/18/2015
7/8/2015 7/8/2015
— —
7/14/2015 7/14/2015
7/16/2015 7/16/2015
— —
12/18/2015 O P.L. 114-113 12/18/2015 O P.L. 114-113
R44240 R44240
2017 2017
4/13/2016 4/13/2016
— —
5/17/2016 5/17/2016
5/19/2016 5/19/2016
— —
5/5/2017 5/5/2017
O P.L. 115-31 O P.L. 115-31
R44588 R44588
2018 2018
6/28/2017 6/28/2017
9/14/2017 9/14/2017
7/18/2017 7/18/2017
7/20/2017 7/20/2017
— —
3/23/2018 3/23/2018
O P.L. 115-141 O P.L. 115-141
R45128 R45128
2019 2019
5/9/2018 5/9/2018
5/16/2018 5/16/2018
— —
5/22/2018 5/22/2018
5/24/2018 5/24/2018
8/1/2018 8/1/2018
2/15/2019 2/15/2019
O P.L. 116-6 O P.L. 116-6
R45230 R45230
2020 2020
5/23/2019 5/23/2019
6/4/2019 6/4/2019
6/25/2019 6/25/2019
9/17/2019 9/17/2019
9/19/2019 10/31/2019 12/20/2019 O P.L. 116-94 9/19/2019 10/31/2019 12/20/2019 O P.L. 116-94
R45974 R45974
2021 2021
7/6/2020 7/6/2020
7/9/2020 7/9/2020
— —
— —
— —
— —
— —
R46437 R46437
Source: CRS. CRS.
Notes: E = enacted as standalone appropriation (eight times E = enacted as standalone appropriation (eight times
transmit a bil to its ful committeetransmit a bil to its ful committee
a. Senate committee action for FY2021 refers to a draft released by the Senate Appropriations Committee. Congressional Research Service Congressional Research Service
Agriculture and Related Agencies: FY2021 Appropriations
Author Information
Jim Monke Jim Monke
Specialist in Agricultural Policy Specialist in Agricultural Policy
Key Policy Staff
Area of Expertise
Name
Agricultural appropriations, USDA Agricultural appropriations, USDA
Jim Monke Jim Monke
Agricultural Marketing Service Agricultural Marketing Service
Joel Greene Joel Greene
Animal Animal
Commodity Commodity
Rena Mil er Rena Mil er
Conservation Conservation
Megan Stubbs Megan Stubbs
Crop insurance Crop insurance
Stephanie Rosch Stephanie Rosch
Disaster Disaster
Megan Stubbs Megan Stubbs
Farm Farm
Randy Schnepf Randy Schnepf
Farm Farm
Jim Monke Jim Monke
Food and Drug Administration Food and Drug Administration
Agata Dabrowska Agata Dabrowska
Food safety, Food safety,
Food safety, meat and poultry inspection Food safety, meat and poultry inspection
Joel Greene Joel Greene
International food assistance International food assistance
Alyssa Casey Alyssa Casey
Nutrition and domestic food assistance Nutrition and domestic food assistance
Randy Alison Randy Alison
Kara Clifford Bil ings Kara Clifford Bil ings
Research and extension Research and extension
Genevieve Genevieve
Rural development Rural development
Alyssa Casey Alyssa Casey
Trade Trade
Anita Regmi Anita Regmi
Congressional Research Service Congressional Research Service
Agriculture and Related Agencies: FY2021 Appropriations
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
under the direction of Congress. Information in a CRS Report should under the direction of Congress. Information in a CRS Report should
than public understanding of information that has been provided by CRS to Members of Congress in than public understanding of information that has been provided by CRS to Members of Congress in
connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not
subject to copyright protection in the United States. Any CRS Report may be reproduced and distributed in subject to copyright protection in the United States. Any CRS Report may be reproduced and distributed in
its entirety without permission from CRS. However, as a CRS Report may include copyrighted images or its entirety without permission from CRS. However, as a CRS Report may include copyrighted images or
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Congressional Research Service Congressional Research Service
R46437 R46437 · VERSION