Agriculture and Related Agencies: FY2021 Appropriations

Agriculture and Related Agencies:
November 20, 2020June 30, 2021
FY2021 Appropriations
Jim Monke
The Agriculture appropriations The Agriculture appropriations bil bill funds the U.S. Department of Agriculture (USDA) funds the U.S. Department of Agriculture (USDA)
except for Specialist in Agricultural Specialist in Agricultural
except for the U.S. Forest Service. It also funds the Food and Drug Administration the U.S. Forest Service. It also funds the Food and Drug Administration
Policy
(FDA) and—in even-(FDA) and—in even- Policy numbered fiscal years—the Commodity Futures Trading numbered fiscal years—the Commodity Futures Trading

Commission (CFTC). Commission (CFTC).

Agriculture appropriations include both mandatory and discretionary spending. Discretionary Agriculture appropriations include both mandatory and discretionary spending. Discretionary amounts, though, amounts, though,
are the primary focus during the are the primary focus during the bil bill’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.
FY2021 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 FY2021A full-year FY2021 Consolidated Appropriations Act (P.L. 116-260) was enacted on December 27, 2020, with Agriculture appropriations in Division A. The fiscal year had begun on October 1, 2020, under a series of five continuing resolutions that generally continued FY2020 funding for the first three months of the fiscal year. During the regular procedural cycle for development of the annual appropriation, the House passed a four-bill minibus appropriation on July 24, 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, the2020, with Agriculture appropriations as Division B, which included the text of a committee -reported bill for agriculture. The Senate Appropriations Committee Senate Appropriations Committee did not formally introduce a bill and released a draft measure and released a draft measure and
explanatory statement on November 10, 2020. explanatory statement on November 10, 2020.
The House-passed bil (H.R. 7608, Division B) would provide $23.97 bil ion Separate from the regular FY2020 annual appropriation, Congress passed six supplemental appropriations acts in response to the Coronavirus Disease 2019 (COVID-19) pandemic, which included funding for various accounts in the jurisdiction of Agriculture appropriations. All of this supplemental funding was designated as emergency spending and not subject to the budget caps that limit appropriations. The enacted regular FY2021 appropriation provides $23.4 billion in discretionary appropriations, an in discretionary appropriations, an
increase of $488 mil ion (+2%) over the regular annual FY2020 appropriation. The primary changes compared
with FY2020 include increases for rural broadband (+$615 mil ion), foreign assistance (+$72 mil 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 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 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 draftincrease of $219 million (+0.9%) over the FY2020 appropriation (on a comparable Senate jurisdiction basis that does not include the Commodity Futures Trading Commission [CFTC]). The discretionary total using the House jurisdiction would be $23.7 billion, counting the CFTC (as shown in the figure). These amounts are about $280 million less than the House-passed bill and $65 million more than the Senate draft. Mandatory spending that is carried in the appropriations act increased $52 billion (+40%) over FY2020, largely as a result of coronavirus supplemental assistance acts that were enacted separately. The primary changes that comprise the $219 million increase from the FY2020 levels include an increase of $231 million for the rural broadband ReConnect program, $119 million more for agricultural research grants and salaries, $91 million more for domestic nutrition assistance, $74 million more for various agriculture agencies, $43 million more for the Food and Drug Administration, $31 million more for foreign food assistance, $52 million more for various other programs, and a $635 million emergency supplemental for Agricultural Quarantine Inspection (AQI). These increases largely were offset by a reduction of $157 million from agricultural research buildings and facilities, a $635 million emergency declaration for the AQI appropriation, and $270 million more of various rescissions and scorekeeping adjustments than in FY2020. Generally speaking, the House-passed bill, the Senate draft, and the enacted appropriation do not include most of the reductions do not include most of the reductions
proposed by the Trump Administration, which had requested $19.9 proposed by the Trump Administration, which had requested $19.9 bil ionbillion for discretionary-funded accounts for discretionary-funded accounts
within the jurisdiction of Agriculture appropriations subcommittees. The within the jurisdiction of Agriculture appropriations subcommittees. The Trump Administration’s request would have Administration’s request would have
been a reduction of $3.6 been a reduction of $3.6 bil ionbillion from FY2020 from FY2020 (-15%), including to foreign food assistance (-$1.97 (-15%), including to foreign food assistance (-$1.97 bil ionbillion); );
domestic nutrition assistance (-$1.06 domestic nutrition assistance (-$1.06 bil ionbillion); and agricultural research, rural development, regulatory, and farm ); and agricultural research, rural development, regulatory, and farm
production and conservation production and conservation agencies (-$530 million). Congressional Research Service Agriculture and Related Agencies: FY2021 Appropriations Scope of Agriculture and Related Agencies Appropriations Budget authority in bil ions of dol ars Source: Congressional Research Service. Notes: Incorporates amounts from General Provisions with the agencies. House jurisdiction basis including CFTC. Does not show agencies under $0.5 bil ion. SNAP = Supplemental Nutrition Assistance Program; CCC = Commodity Credit Corporation; FCIC = Federal Crop Insurance Corporation; Section 32 = Funds for Strengthening Markets, Income and Supply; WIC = Special Supplemental Nutrition Program for Women, Infants, and Children; CSFP = Commodity Supplemental Food Program; FDA = Food and Drug Administration; FSA = Farm Service Agency, incl. Farm Production and Conservation Business Center; RMA = Risk Management Agency; FSIS = Food Safety and Inspection Service; APHIS = Animal and Plant Health Inspection Service; NRCS = Natural Resources Conservation Service. Congressional Research Service link to page 6 link to page 8 link to page 10 link to page 11 link to page 11 link to page 11 link to page 12 link to page 13 link to page 13 link to page 14 link to page 16 link to page 17 link to page 18 link to page 24 link to page 24 link to page 24 link to page 7 link to page 9 link to page 10 link to page 12 link to page 6 link to page 7 link to page 20 link to page 25 link to page 26 link to page 26 link to page 27 link to page 29 link to page 30 link to page 33agencies (-$530 mil ion).
Separate from the regular FY2020 annual appropriation, Congress passed four supplemental appropriations acts in
response to the COVID-19 pandemic, al designated as emergency spending. These acts provide $53 bil ion
during FY2020 to programs in the jurisdiction of the Agriculture appropriations subcommittees. Of this, $36
bil ion are specified supplemental amounts, $3 bil ion is from an indefinite authorization, and $14 bil ion is
reimbursement for past obligations that is comparable to the annual appropriation.
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Agriculture and Related Agencies: FY2021 Appropriations

Figure 1.Discretionary Agriculture Appropriations, by Title, FY2020-FY2021

Source: Congressional Research Service.
Note: CFTC = Commodity Futures Trading Commission. For comparability, includes CFTC in Related Agencies in al
columns regardless of jurisdiction.
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Contents
Status of FY2021 Agriculture Appropriations ...................................................................... 1
Scope of Agriculture Appropriations .................................................................................. 43
Recent Trends in Agriculture Appropriations ....................................................................... 65
Budget Caps and Subcommittee Allocations........................................................................ 76
Budget Resolution ..................................................................................................... 76
Budget Caps ............................................................................................................. 76
Discretionary Spending Al ocations .............................................................................. 87
Action on FY2021 Appropriations ..................................................................................... 8
Administration’s Budget Request ................................................................................. 8
House Action ............................................................................................................ 9 10
Senate Action.......................................................................................................... 11
Continuing Resolution.............................................................................................. 12
Consolidated Appropriations Act................................................................................ 13 Other Appropriations Issues ............................................................................................ 2119
Policy-Related Provisions ......................................................................................... 2119
COVID-19 Supplemental Appropriations in FY2020..................................................... 21

Figures
Figure 1.Discretionary Agriculture Appropriations, by Title, FY2020-FY2021.......................... 3
Figure 2............... 19 Figures Figure 1. Timeline of Action on Agriculture Appropriations, FY2011-FY2021.......................... 32
Figure 32. Scope of Agriculture and Related Agencies Appropriations ...................................... 54
Figure 4. 3. Trend in Discretionary Agriculture Appropriations, by Title, FY2011-FY2021 ......................... 6 5
Figure 54. BCA Discretionary Limits, FY2014-FY2021 ......................................................... 87

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 .......... 15

Table A-1. USDA Departmental Administration Appropriations ........................................... 2320
Table B-1. General Provisions: Changes in Mandatory Program Spending (CHIMPS) ............. 2521
Table B-2. General Provisions: Rescissions from Discretionary Accounts .............................. 2621
Table B-3. General Provisions: Other Appropriations.......................................................... 2722
Table B-4. General Provisions: Scorekeeping Adjustments .................................................. 3024
Table C-1. Summary of Sequestration on Agriculture Accounts ............................................ 3125
Table D-1. Congressional Action on Agriculture Appropriations Since FY1996 ...................... 3428

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Appendixes
Appendix A. Appropriations in Administrative Accounts USDA Departmental Administration.............................................................. 2320
Appendix B. Appropriations in General Provisions............................................................. 2521
Appendix C. Budget Sequestration .................................................................................. 3125
Appendix D. Action on Agriculture Appropriations, FY1996-FY2021 ................................... 3428

Contacts
Author Information ....................................................................................................... 3529


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Status of FY2021 Agriculture Appropriations
In the absence of an enacted full-year appropriation, FY2021 beganA full-year FY2021 Consolidated Appropriations Act (P.L. 116-260) was enacted on December 27, 2020, with Agriculture appropriations in Division A. The fiscal year had begun on October 1, on October 1, 2020, under a series of five continuing resolutions that general y continued FY2020 funding for the first three months of the fiscal year. During2020, 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 the regular procedural cycle for the annual appropriation, the House passed a four-bil FY2021
minibus appropriation (H.R. 7608) on July 24, 2020, minibus appropriation (H.R. 7608) on July 24, 2020, which contained thewith Agriculture Agriculture
appropriations appropriations bil as Division as Division B (Table 1). It carriesB, which included the text of the text of thea committee-reported committee-reported
Agriculture appropriations bil (H.R. 7610), as amendedbil for agriculture (H.R. 7610). The Senate Appropriations Committee . The Senate Appropriations Committee
did not formal y introduce a bil and released a draft measure and released a draft measure and explanatory statement on November 10, 2020explanatory statement on November 10, 2020. See Figure 2 for a
comparison of timelines and Appendix D for more details (Table 1). See Figure 1 for a timeline comparison. .
Table 1. Status of FY2021 Agriculture Appropriations
Continuing
Final
House Action
Senate Action
Resolution
Appropriation
Administration Administration Continuing Final
Request
Subcmte.
Cmte.
Floor
Subcmte.
Cmte.
Floor
Resolutions Appropriation

2/10/2020 2/10/2020
7/6/2020 7/6/2020
7/9/2020 7/9/2020
7/24/2020 7/24/2020
— —
11/10/2020 11/10/2020
— —
10/1/2020 10/1/2020
—12/27/2020
OMB Budget OMB Budget
P.L. 116-159 until Appendix Appendix
Draf Drafta
H.R. 7610 H.R. 7610
H.R. 7608 H.R. 7608
Draf Draftb
P.L. 116- P.L. 116-159260 12/11/2020
USDA USDA
Voice vote Voice vote
H.Rept. H.Rept.
Division B Division B
until 12/11/2020Division A
FDA FDA
116-446 116-446
Vote of Vote of
CFTC
Voice vote
224-189
FCAP.L. 116-215 until H.Cmte.Print CFTC 12/18/2020 Voice vote 224-189 43-749, Book I FCA P.L. 116-225 until 12/20/2020 P.L. 116-226 until 12/21/2020 P.L. 116-246 until 12/28/2020
Source: Congressional Research Service (CRS), compiled from Congress.gov, OMB, and agency websites. Congressional Research Service (CRS), compiled from Congress.gov, OMB, and agency websites.
Note: OMB = Office of Management and Budget, USDA = U.S. Department of Agriculture, FDA = Food and OMB = Office of Management and Budget, USDA = U.S. Department of Agriculture, FDA = Food and
Drug Administration, CFTC = Commodity Futures Trading Commission, and FCA = Farm Credit Drug Administration, CFTC = Commodity Futures Trading Commission, and FCA = Farm Credit
Administration. Administration.
a. The House subcommittee draft is a. The House subcommittee draft is available at https://appropriations.house.gov/legislation/agriculture-at https://appropriations.house.gov/legislation/agriculture-
subcommittee-subcommittee- legislative-activity. legislative-activity.
b. The Senate Appropriations Committee b. The Senate Appropriations Committee released subcommittee draftsdraft is at https://www.appropriations. at https://www.appropriations.
senate.gov/news/committee-senate.gov/news/committee- releases-fy21-bil s-in-effort-to-advance-process-produce-bipartisan-results. releases-fy21-bil s-in-effort-to-advance-process-produce-bipartisan-results.
The The House-passed bil would provide $23.97 bil ion enacted FY2021 appropriation provides $23.4 bil ion in discretionary appropriations, an increase in discretionary appropriations, an increase
of $of $488219 mil ion mil ion (+2 (+0.9%) over the regular annual FY2020 appropriation (on a comparable basis that does not include the Commodity Futures Trading Commission [CFTC]).1 This is about $280 mil ion less than the House-passed bil and $65 mil ion more than the Senate draft (Table 2). Mandatory spending that is carried in the appropriations act increased $52 bil ion (+40%) over FY2020, largely as a result of coronavirus supplemental assistance acts that were enacted separately. %) over the regular annual FY2020 appropriation (Table 2). The primary
changes compared with FY2020 include increases for rural broadband (+$615 mil ion), foreign
assistance (+$72 mil 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 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) appropriations differs between the chambers. Since 1 Jurisdiction for Commodity Futures T rading Commission (CFT C) appropriations differs between the chambers. Since
FY2008, CFT C is marked up in the Agriculture Subcommittee of the House Appropriations Committee and in the FY2008, CFT C is marked up in the Agriculture Subcommittee of the House Appropriations Committee and in the
Financial Services and General Government Subcommittee of the Senate Appropriations Committee. T he enacted Financial Services and General Government Subcommittee of the Senate Appropriations Committee. T he enacted
CFT C appropriation is carried in the Agriculture bill in even -numbered fiscal years and in the Financial Services bill in CFT C appropriation is carried in the Agriculture bill in even -numbered fiscal years and in the Financial Services bill in
odd-numbered fiscal years. odd-numbered fiscal years.
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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). 1 link to page 33 Agriculture and Related Agencies: FY2021 Appropriations
Table 2. Agriculture and Related Agencies Appropriations, by Title, FY2020-FY2021
Budget authority in mil ions of dol ars (discretionary unless stated otherwise)

FY2020
FY2021
Change from FY2020
Title of Agriculture
COVID-19
Admin.
House-
Senate
to House-
to Senate
Appropriations Act
P.L. 116-94
Actsa
requestb
passed
draft
Enacted
passed
draft
I. Agricultural Programs
6,163.1
133.8
6,148.0
6,110.5
6,141.0
—
-52.6
-22.1
Mandatory
1,404.0
—
1,359.9
1,359.9
1,359.9
—
-44.1
-44.1
Subtotal
7,567.1
—
7,507.8
7,470.4
7,500.9
—
-96.8
-66.3
II. Farm Production, Conservation
2,819.0
3.0
2,618.7
2,835.5
2,829.1
—
+16.5
+10.2
Mandatory
36,268.5
14,000.0
34,269.6
34,269.6
34,269.6
—
-1,998.9
-1,998.9
Subtotal
39,087.5
14,003.0
36,888.3
37,105.1
37,098.7
—
-1,982.4
-1,988.8
III. Rural Development
3,240.6c
45.5
3,410.5
3,249.0c
3,121.2c
—
+8.4
-119.4
IV. Domestic Food Programs
6,566.0
1,350.0
5,700.7
6,383.3
6,586.0
—
-182.7
+20.0
Mandatory
91,436.3
24,710.0
93,309.8
93,851.9
93,368.6
—
+2,415.7
+1,932.4
Subtotal
98,002.3
26,060.0
99,010.5
100,235.3
99,954.7
—
+2,232.9
+1,952.3
V. Foreign Assistance
2,172.7
4.0
205.9
2,244.4
2,171.8
—
+71.7
-0.9
VI. Food and Drug Administration
3,171.5c
163.0
3,220.4
3,218.3
3,211.5
—
+46.8
+40.0
Commodity Fut. Trading Comm.
315.0
—
226.5
304.0
[304.0]
—
-11.0
-11.0
VII. General Provisions:








CHIMPS and rescissionsd
-1,006.1
—
-1,200.0
-988.0
-800.0
—
+18.1
+206.1
Emergency appropriations
535.0
—
0.0
—
0.0
—
-535.0
-535.0
Other appropriations
440.3
12,600.0
0.0
1,036.4
483.9
—
+596.1
+43.6
Scorekeeping adjustmentse
-398.0
—
-424.0
-421.0
-421.0
—
-23.0
-23.0
Emergency designation
-535.0
—a
0.0
—
0.0
—
+535.0
+535.0
Senate basis, w/o CFTC
[23,169.1]
14,299.3
19,680.2 [23,668.4]
23,323.4
—
+499.3
+154.3
House basis, w/ CFTC
23,484.1
14,299.3
19,906.7
23,972.4
[23,627.4]
—
+488.3
+143.3
Mandatory
129,108.8
38,710.0
128,939.3
129,481.4
128,998.1
—
+372.6
-110.7
Total: Senate basis
[152,278.0]
53,009.3
148,619.4 [153,149.9]
152,321.5
—
+871.9
+43.6
Total: House basis
152,593.0
53,009.3
148,845.9
153,453.9 [152,625.5]
—
+860.9
+32.6FY2020-FY2021 Budget authority in mil ions of dol ars (discretionary unless stated otherwise) FY2020 FY2021 Change from FY2020 to FY2021 enacted Title of Agriculture P.L. 116- Admin. House- Senate P.L. 116- Appropriations Act 94 request passed draft 260 $ % Discretionary Senate basis, w/o CFTC [23,169.1] 19,680.2 [23,668.4] 23,323.4 23,388.4 +219.3 +0.9% House basis, w/ CFTC 23,484.1 19,906.7 23,972.4 [23,627.4] [23,692.4] +208.3 +0.9% Mandatory 129,108.8 128,939.3 129,481.4 128,998.1 181,020.7 +51,911.9 +40.2% Total: Senate basis 152,278.0 148,619.4 153,149.9 152,321.5 204,409.1 +52,131.2 +34.2% Total: House basis 152,593.0 148,845.9 153,453.9 152,625.5 204,713.1 +52,120.2 +34.2%
Source: CRS, using appropriations text and reports and unpublished CBO tables. House-passed refers to H.R. 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. 7608, Division B. Senate draft refers to the Senate Appropriations Committee draft from November 10, 2020.
Notes: Amounts are nominal discretionary budget authority unless labeled otherwise. Bracketed amounts are Amounts are nominal discretionary budget authority unless labeled otherwise. 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.
116-139), al of which was emergency spending. Although amounts were not designated mandatory, they are
grouped 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 various legislative proposals.
c. Excludes amounts that are provided separately in General Provisions (see Table B-3).
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Agriculture and Related Agencies: FY2021 Appropriations

d. Changes in Mandatory Program Spending (CHIMPS) revise mandatory programs via appropriations (Table
B-1). Rescissions are permanent cancel ations of previous authorizations (see Table B-2).
e. “Scorekeeping adjustments” are part of the official accounting for budget enforcement (Table B-4).
Figure 2Excludes coronavirus supplemental appropriations acts, except as incorporated into mandatory appropriations. Figure 1. Timeline of Action on Agriculture Appropriations, FY2011-FY2021

Source: CRS. For specific dates and links to bil s, se CRS. For specific dates and links to bil s, see Appendix DAppendix D.
Notes: For FY2021, the Senate Committee released a draft subcommittee bil on November 10, 2020. Blue For FY2021, the Senate Committee released a draft subcommittee bil on November 10, 2020. Blue
shading shows the beginning of each fiscal year. Yel ow shading is the current appropriations cycle.shading shows the beginning of each fiscal year. Yel ow shading is the current appropriations cycle.

Congressional Research Service 2 link to page 9 link to page 9 Agriculture and Related Agencies: FY2021 Appropriations Other CRS Resources for Agricultural Appropriations
 
CRS In Focus IF11491, CRS In Focus IF11491, Supplemental Appropriations for Agriculture and Related Agencies Due to COVID-19
 
CRS CRS Insight IN11250, USDA Domestic FoodReport R46681, USDA Nutrition Assistance Programs’: Response to the COVID-19 PandemicCOVID-19: P.L. 116-127, P.L. 116-
136, and Related Efforts
 
CRS Report R46488, CRS Report R46488, USDA Domestic Food Assistance Programs: FY2020 Appropriations
 
CRS Report CRS Report R46255, International Food Assistance: FY2020 Appropriations

CRS Report R46011, FY2020R44606, The Commodity Credit Corporation (CCC)  CRS Report R45422, U.S. International Food Assistance: An Overview  CRS Report R46728, FY2021 Appropriations for Agricultural Conservation
 
CRS In Focus IF11452, CRS In Focus IF11452, Staffing Trends in the USDA Farm Production and Conservation (FPAC) Mission Area
 
CRS CRS Insight IN11168, The CCC Anomaly in an FY2020 Continuing Resolution
In Focus IF11262, USDA’s ReConnect Broadband Pilot Program  
CRS Report R44576, 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
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Scope of Agriculture Appropriations
The Agriculture appropriations bil —formal y known as the Agriculture, Rural Development, The Agriculture appropriations bil —formal y known as the Agriculture, Rural Development,
Food and Drug Administration, and Related Agencies Appropriations Act—funds al of the U.S. Food and Drug Administration, and Related Agencies Appropriations Act—funds al 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, in even-numbered fiscal years, CFTC. and Drug Administration (FDA) and, in 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
bil includes mandatory and discretionary spending, but the discretionary amounts are the primary bil includes mandatory and discretionary spending, but the discretionary amounts are the primary
focusfocus (Figure 32). 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 i Infants, and Children (WIC); or child nutrition (checkered regions in Figure 32). ).
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 usual y advanced carried in the appropriation and usual y 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-cal ed entitlement programs is determined in laws such process.6 Spending for so-cal ed entitlement programs is determined in laws such
as the 2018 farm bil 7 and 2010 child nutrition reauthorization.8 as the 2018 farm bil 7 and 2010 child nutrition reauthorization.8
In the In the FY2020FY2021 appropriation (P.L. 116- appropriation (P.L. 116-94260), the discretionary amount is ), the discretionary amount is 1512% ($% ($2324 bil ion) of the bil ion) of the
$$153 bil ion total. Mandatory spending carried in the act comprised $129 bil ion, about 85% of
the total, of which about $106 bil ion is attributable to programs in the 2018 farm bil .
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
inspection, 205 bil ion total (on a House jurisdiction basis that includes CFTC). Mandatory spending carried 2 Although the Forest Service is part of USDA, its appropriations jurisdiction is in the Interior Appropriations Act. 3 See CRS In Focus IF11032, Budgetary Decisionmaking in Congress; and CRS Report R44582, Overview of Funding Mechanism s in the Federal Budget Process, and Selected Exam ples. 4 See CRS Report R42388, The Congressional Appropriations Process: An Introduction. 5 Mandatory spending creates funding 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. 6 See CRS Report 98-560, Baselines and Scorekeeping in the Federal Budget Process. 7 P.L. 115-334 (Agricultural Act of 2018). See CRS Report R45425, Budget Issues That Shaped the 2018 Farm Bill. 8 P.L. 111-296 (Healthy, Hunger-Free Kids Act of 2010). See CRS In Focus IF10266, Child Nutrition Reauthorization (CNR): An Overview. Congressional Research Service 3 Agriculture and Related Agencies: FY2021 Appropriations in the act comprised $181 bil ion, about 88% of the total, which is higher than usual because of the large supplemental spending from coronavirus assistance acts. Within the discretionary total, the largest spending items are WIC, rural development, agricultural research, FDA, foreign food aid and trade, farm assistance loans and salaries, animal and plant health programs, animal and plant health programs, food safety inspection, and technical assistance for conservation program. 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 part of USDA, its appropriations jurisdiction is in the Interior Appropriations Act.
3 See CRS In Focus IF11032, Budgetary Decisionmaking in Congress; and CRS Report R44582, Overview of Funding
Mechanism s in the Federal Budget Process, and Selected Exam ples.
4 See CRS Report R42388, The Congressional Appropriations Process: An Introduction .
5 Mandatory spending creates funding 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.
6 See CRS Report 98-560, Baselines and Scorekeeping in the Federal Budget Process.
7 P.L. 115-334 (Agricultural Act of 2018). See CRS Report R45425, Budget Issues That Shaped the 2018 Farm Bill.
8 P.L. 111-296 (Healthy, Hunger-Free Kids Act of 2010). See CRS In Focus IF10266, Child Nutrition Reauthorization
(CNR): An Overview.
Figure 2. Scope of Agriculture and Related Agencies Appropriations Budget authority in bil ions of dol ars Source: CRS. Notes: Incorporates amounts from General Provisions with the agencies. House jurisdiction basis including CFTC. Does not show agencies under $0.5 bil ion. SNAP = Supplemental Nutrition Assistance Program; CCC = Commodity Credit Corporation; FCIC = Federal Crop Insurance Corporation; Section 32 = Funds for Strengthening Markets, Income and Supply; WIC = Special Supplemental Nutrition Program for Women, Infants, and Children; CSFP = Commodity Supplemental Food Program; FDA = Food and Drug Admin istration; FSA = Farm Service Agency, incl. Farm Production and Conservation Business Center; RMA = Risk Management Agency; FSIS = Food Safety and Inspection Service; APHIS = Animal and Plant Health Inspection Service; NRCS = Natural Resources Conservation Service. 9 See CRS Report RS20129, 9 See CRS Report RS20129, Entitlements and Appropriated Entitlements in the Federal Budget Process. .
10 See CRS Report R44606, 10 See CRS Report R44606, The Commodity Credit Corporation: In Brief (CCC). .
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link to page 10 link to page 10 Agriculture and Related Agencies: FY2021 Appropriations Recent Trends in Agriculture Appropriations In the past 10 years, discretionary Agriculture appropriations were the lowest in FY2013 and have gradual y increased 20% over eight years. These historical measures may be tempered by inflation adjustments, as shown in the dotted line in Figure 3. In inflation-adjusted dollars, the Agriculture appropriations total is 1.3% less in FY2021 than it was a decade ago, 4.6% higher than the low in FY2013, and 3.9% less than the recent inflation-adjusted high in FY2018. Changes within titles general y have been proportionate to changes in the overal bil , though some areas, such as FDA (related agencies), have relative increases. The total of the positive stacked bars in Figure 3 is the budget authority for agencies in Titles I-VI of the act. (In FY2018, USDA reorganization affected the placement of some programs between Titles I and II, most noticeably the Farm Service Agency). In most years, the cumulative appropriation for the six titles is higher than the official discretionary spending al ocation (the blue line) because of budgetary offset from negative amounts in Title VII (general provisions) and other negative scorekeeping adjustments. These negative offsets mostly are due to rescissions of prior-year unobligated funds and, before FY2018, limits placed on mandatory programs. Figure 3. Trend in Discretionary Agriculture Appropriations, by Title, FY2011-FY2021 Source: CRS. Note: For FY2021, Adm. is the Trump Administration’s request; House is House-passed H.R. 7608, Division B; and Sen. is the Senate Appropriations Committee draft. For comparability, includes CFTC in Related Agencies in al columns regardless of jurisdiction. The inflation-adjusted line was calculated using the gross domestic product price deflator. Amounts printed diagonal y indicate the solid line. Congressional Research Service 5 Agriculture and Related Agencies: FY2021 Appropriations Key Budget Terms Budget authority 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 expires at the end of a period, usual y after one year unless specified otherwise (e.g., two years or indefinite). Most funding amounts in this report are budget authority. Obligations are contractual agreements between a government agency and its clients or employees. These occur when an agency agrees to spend money from its budget authority. The Antideficiency Act prohibits agencies from obligating more budget authority than is provided in law, such as during a government shutdown. Outlays are the payments (cash disbursements) that satisfy a valid obligation. Timing of outlays may differ from budget authority or obligations because payments from an agency may not occur until services are fulfil ed, goods are delivered, or construction is completed, even though an obligation occurred. Program level represents the sum of the activities undertaken by an agency. A program level may be higher than a budget authority if the program (1) receives user fees, (2) includes loans that are leveraged by an expectation of repayment (loan authority may exceed budget authority), or (3) receives transfers from other agencies. Rescissions are actions that reduce budget authority after enactment. They general y score budgetary savings. CHIMPS (Changes in Mandatory Program Spending) are adjustments via an appropriations act that can change available funding for mandatory programs. CHIMPS usual y change spending for one year and may score either as an increase or decrease to outlays. They do not change the underlying authority of the program in law. For more background, see CRS Report 98-721, Introduction to the Federal Budget Process. Agriculture and Related Agencies: FY2021 Appropriations

Figure 3. Scope of Agriculture and Related Agencies Appropriations
Budget authority in bil ions of dol ars

Source: CRS.
Notes: SNAP = Supplemental Nutrition Assistance Program; CCC = Commodity Credit Corporation; FCIC =
Federal Crop Insurance Corporation; Section 32 = Funds for Strengthening Markets, Income and Supply; WIC =
Special Supplemental Nutrition Program for Women, Infants, and Children; CSFP = Commodity Supplemental
Food Program; FDA = Food and Drug Administration; FSA = Farm Service Agency, incl. Farm Production and
Conservation Business Center; RMA = Risk Management Agency; FSIS = Food Safety and Inspection Service;
APHIS = Animal and Plant Health Inspection Service; NRCS = Natural Resources Conservation Service. Does
not show agencies under $0.5 bil ion. Spending in the General Provisions 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
provides the legal basis from which to obligate funds. It expires at the end of a period, usual y after one year unless
specified otherwise (e.g., two years or indefinite). Most funding amounts in this report are budget authority.
Obligations are contractual agreements between a government agency and its clients or employees. These occur
when an agency agrees to spend money from its budget authority. The Antideficiency Act prohibits agencies from
obligating more budget authority than is provided in law, such as during a government shutdown.
Outlays are the payments (cash disbursements) that satisfy a valid obligation. Timing of outlays may differ from
budget authority or obligations because payments from an agency may not occur until services are fulfil ed, goods
are delivered, or construction is completed, even though an obligation occurred.
Program level represents the sum of the activities undertaken by an agency. A program level may be higher than
a budget authority if the program (1) receives user fees, (2) includes loans that are leveraged by an expectation
of repayment (loan authority may exceed budget authority), or (3) receives transfers from other agencies.
Rescissions are actions that reduce budget authority after enactment. They general y score budgetary savings.
CHIMPS (Changes in Mandatory Program Spending) are adjustments via an appropriations act that can change
available funding for mandatory programs. CHIMPS usual y change spending for one year and may score either as
an increase or decrease to outlays. They do not change the underlying authority of the program in law.
For more 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
a high in FY2010. Since FY2013, they have gradual y increased 19% over seven years. Changes
within titles have general y been proportionate to changes in the overal bil , though some areas
have sustained relative increases, such as FDA (related agencies) and rural development.
The stacked bars in Figure 4 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,
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
agencies is higher than the official discretionary total in the spending al ocation (the blue line)
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-
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
FY2020 the inflation-adjusted total is 0.2% less than it was in FY2011 and 2.8% less than it was
in FY2018.
Figure 4. Discretionary Agriculture Appropriations, by Title, FY2011-FY2021

Source: CRS.
Note: For FY2021, Adm. is the Trump Administration’s request; House is House-passed H.R. 7608, Division B;
and Sen. is the Senate Appropriations Committee draft. For comparability, includes CFTC in Related Agencies in
al columns regardless of jurisdiction. The inflation-adjusted line was calculated using the gross domestic product
price deflator. Amounts printed diagonal y indicate the solid line, which is the subcommittee 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 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 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 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 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 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 budget resolution. The Appropriations Committees then in turn subdivide the al ocation among
their subcommittees, referred to as the “302(b)” al ocations.12 their subcommittees, referred to as the “302(b)” al ocations.12
For FY2021, the House and Senate Budget Committees For FY2021, the House and Senate Budget Committees have not reporteddid not report a budget resolution a budget resolution to develop the regular appropriations bil s. .
Budget Caps
The Budget Control Act of 2011 (BCA; P.L. 112-25) set discretionary budget caps from FY2013 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 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-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 board backstop to achieve budget reductions by permanently canceling budget authority when
spending exceeds budget caps (2 U.S.C. §901(c)).14 spending exceeds budget caps (2 U.S.C. §901(c)).14
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. Congressional Research Service 6 link to page 12 link to page 30 Agriculture and Related Agencies: FY2021 Appropriations FY2021 is the last year with budget caps under the BCA. After FY2021 is the last year with budget caps under the BCA. Since 2011, Bipartisan Budget Acts 2011, Bipartisan Budget Acts
(BBAs) in 2013, 2015, 2018, and 2019 have raised the caps to al ow more spending and avoid (BBAs) in 2013, 2015, 2018, and 2019 have raised the caps to al ow more spending and avoid
sequestration on discretionary accounts sequestration on discretionary accounts (Figure 54).15 ).15
Despite the BBA agreements that have raised discretionary spending caps to avoid sequestration Despite the BBA agreements that have raised discretionary spending caps to avoid sequestration
(with the exception of FY2013), sequestration stil impacts mandatory spending accounts. (with the exception of FY2013), sequestration stil impacts mandatory spending accounts.
Sequestration on mandatory accounts began in FY2013 and continues to the present. Congress 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, 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 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. 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 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 (s 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 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 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 nondefense spending category. The BBA provides language to execute (or “deem”) the caps for
the appropriations process without a budget resolution.16 the appropriations process without a budget resolution.16
TheFY2021The FY2021 budget cap of $627 bil ion for nondefense spending is about 1% greater than the cap budget cap of $627 bil ion for nondefense spending is about 1% greater than the cap
that was used to write the FY2020 appropriations. Figure 4that 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 Budget authority in bil ions of nominal dol ars

Source: CRS Insight IN11148, 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 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 al ocations (H.Rept. 116-143). The discretionary al ocation for Agriculture iswas $23.98 bil ion, an $23.98 bil ion, an
increase of 2% above the FY2020 level. increase of 2% above the FY2020 level.
On November 10, 2020, the Senate Appropriations Committee reported its 302(b) subcommittee On November 10, 2020, the Senate Appropriations Committee reported its 302(b) subcommittee
al ocations on the committee website with the draft al ocations on the committee website with the draft billsbil s. The discretionary al ocation for . The discretionary al ocation for
Agriculture Agriculture iswas $23.33 bil ion, an increase of nearly 1% above FY2020. $23.33 bil ion, an increase of nearly 1% above FY2020.
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. Congressional Research Service 7 link to page 20 link to page 10 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,
2020.17 USDA concurrently released its more detailed budget summary and justification,18 as did 2020.17 USDA concurrently released its more detailed budget summary and justification,18 as did
the FDA,19 the CFTC,20 and the Farm Credit Administration.21 The Administration also the FDA,19 the CFTC,20 and the Farm Credit Administration.21 The Administration also
highlighted separately some of its proposed reductions and eliminations.22 highlighted separately some of its proposed reductions and eliminations.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 For accounts in the jurisdiction of the House Agriculture Appropriations Subcommittee, the
Administration’s budget Administration’s budget requestsrequested $19.9 bil ion, a $3.6 bil ion reduction from FY2020 (-15%; $19.9 bil ion, a $3.6 bil ion reduction from FY2020 (-15%;
Table 3, Figure 43).23 23
The primary changes in the The primary changes in the Trump Administration’s request compared with what Congress Administration’s request compared with what Congress enacted in enacted in
FY2020 FY2020 includeincluded proposed reductions to the following: proposed 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 bil ion) and the McGovern-Dole Food for Peace Title II grants (-$1.73 bil ion) and the McGovern-Dole
International Food for Education (-$220 mil ion).24 International Food for Education (-$220 mil ion).24
  Domestic nutrition assistance programs (-$1.06 billion), mostly from , mostly from
reductions to the WIC program (-$549 mil ion, -9%) and the commodity reductions to the WIC program (-$549 mil ion, -9%) and the commodity
assistance program (-$264 mil ion, -77%). In addition, the Administration assistance program (-$264 mil ion, -77%). In addition, the Administration
proposes proposed rescinding more from unspent WIC balances than was done by the rescinding more from unspent WIC balances than was done by the
enacted FY2020 General Provisions (-$200 mil ion), which enacted FY2020 General Provisions (-$200 mil ion), which contributescontributed to the to the
overal budget effect of the request. overal budget effect of the request.
  Farm Production and Conservation mission area (-$200 million, -7%), ,
mostly from defunding watershed programs that are typical y not requested by mostly from defunding watershed programs that are typical y 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 mil ion, -74%); ARS Agricultural Research Service (ARS) facilities (-$143 mil ion, -74%); ARS
salaries and expenses (-$46 mil ion, -3%); the Economic Research Service (-$23 salaries and expenses (-$46 mil ion, -3%); the Economic Research Service (-$23
mil ion, -27%); and formula research grants (-$53 mil ion). The request would mil ion, -27%); and formula research grants (-$53 mil ion). The request would
increasehave increased competitive research (+$175 mil ion) and competitive research (+$175 mil ion) and create created separate funding for the Office funding for the Office
of Chief Scientist (+$6 mil ion).25 of Chief Scientist (+$6 mil ion).25
  Rural development (-$130 million), from reductions to rural business , from reductions to rural business
development programs (-$95 mil ion, -90%); rural housing programs (-$92 development programs (-$95 mil 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:

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. 23 T his represents the Administration’s request based on current law and does not reflect the Administration’s various 23 T his represents the Administration’s request based on current law and does not reflect the Administration’s various
legislative proposals thatlegislative proposals that would change mandatory programs and any related changes to appropriations. would change mandatory programs and any related changes to appropriations.
24 A similar reduction is discussed in CRS Report R46255, 24 A similar reduction is discussed in CRS Report R46255, International Food Assistance: FY2020 Appropriations. .
25 CRS Report R46341, 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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Congressional Research Service 8 Agriculture and Related Agencies: FY2021 Appropriations 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 have increased rural development administration (+$64 mil ion net) and created 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 were offset by proposed increases to the following:
  USDA administration (+$142 million, +30%), mostly by increasing the Office , mostly by increasing the Office
of Chief Information Officer (+$76 mil ion, +155%); buildings and facilities 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, (+$25 mil ion, +19%); the Office of Budget and Program Analysis (+$11 mil ion,
+117%); and Departmental Administration (+$6 mil ion, +27%). The request +117%); and Departmental Administration (+$6 mil ion, +27%). The request
would would createhave created an Office of Safety, Security and Protection (+$25 mil ion) an Office of Safety, Security and Protection (+$25 mil ion) and an and an
Office of Information Affairs (+$2.5 mil ion). It would Office of Information Affairs (+$2.5 mil ion). It would reducehave reduced the Office of the Office of
Public Partnership and Engagement (-$4 mil ion, -68%). 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 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 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 request for USDA overal , the FDA and FCA budget requests, and the USDA and HHS Offices of
Inspector General.27 Inspector General.27
On July 6, 2020, the House Agriculture Appropriations Subcommittee marked up a FY2021 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 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). 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 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 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 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 reported a modified open rule29 (H.Rept. 116-459) that made in order for floor consideration 24 of
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. 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. Congressional Research Service 9 link to page 20 link to page 14 Agriculture and Related Agencies: FY2021 Appropriations these 45 amendments.30 During floor consideration, al 24 amendments in Division B were 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 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 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 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 mandatory spending without offset, 3 added policy statements, and 12 made no substantive
changes but were for the purposes of discussion. changes but were for the purposes of discussion.
The House-passed Agriculture appropriations bil would The House-passed Agriculture appropriations bil would providehave provided $23.97 bil ion in discretionary $23.97 bil ion in discretionary
appropriations, an increase of $488 mil ion (+2%) over the regular annual FY2020 appropriations, an increase of $488 mil ion (+2%) over the regular annual FY2020 appropriation. appropriation.
General y speaking, the House-reported bil General y speaking, the House-reported bil doesdid not include most of the reductions not include most of the reductions proposed by proposed by
the Administration and the Administration and iswas $4.07 bil ion $4.07 bil ion greater than the Administration’s request. greater than the Administration’s request.
Table 3 provides details of the House-passed bil at the agency levelprovides details of the House-passed bil at the agency level; Table 2 summarizes it by
titles of the bil . . The primary changes in the The primary changes in the bil bil that comprise the $488 mil ion increase, that comprise the $488 mil ion increase,
compared to the annual enacted FY2020 compared to the annual enacted FY2020 appropriation, appropriation, includeincluded increases to the following: 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 (alsoalso knownknown asas ReConnect; +615 mil ion,
+205%), to expand rural broadband.32 This is in the General Provisions title. , to expand rural broadband.32 This is in the General Provisions title.
  Foreign assistance (+$72 million, +3%), to increase Food for Peace Title II , to increase Food for Peace Title II
grants and McGovern-Dole Food for Education. grants and McGovern-Dole Food for Education.
  USDA food safety and regulatory programs (+$63 million, +3%), mostly by , mostly by
increasing the Food Safety Inspection Service by $34 mil ion and the Animal and increasing the Food Safety Inspection Service by $34 mil ion and the Animal and
Plant Health Inspection Service by $27 mil ion. 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 mostly from increasing the FPAC Business Center by $28 mil ion and
Conservation Operations by $4 mil ion and reducing two watershed programs. Conservation Operations by $4 mil ion and reducing two watershed programs.
  Rural Development (+$8 million, +0.3%), a net increase mostly from , a net increase mostly from
increasing program administration (+$64 mil ion) and reducing rural utilities (- increasing program administration (+$64 mil ion) and reducing rural utilities (-
$25 mil ion), rural housing (-$24 mil ion), and rural businesses (-$7 mil ion). $25 mil ion), rural housing (-$24 mil ion), and rural businesses (-$7 mil ion).
Changes from FY2020 in the House-passed bil also Changes from FY2020 in the House-passed bil also includeincluded reductions to the following: reductions to the following:
  Domestic nutrition assistance programs (-$183 million, -3%), mostly from the , mostly from the
WIC program, although the Commodity Assistance Program would WIC program, although the Commodity Assistance Program would increasehave risen. .
  Agricultural research (-$81 mil ion, -3%), a net reduction comprised mostly , a net reduction comprised mostly
from reducing ARS buildings and facilities by $182 mil ion while increasing the from reducing ARS buildings and facilities by $182 mil ion while increasing the
program support for four agricultural research agencies by $101 mil ion. 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 , for various miscel aneous amounts in the
General Provisions title (not including the ReConnect program above). General Provisions title (not including the ReConnect program above).
  Commodity Futures Trading Commission (-$11 million, -3%). .
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. 32 See CRS In Focus IF11262, USDA’s ReConnect Broadband Pilot Program . Congressional Research Service 10 link to page 20 link to page 16 Agriculture and Related Agencies: FY2021 Appropriations Senate Action
The Senate Agriculture Appropriations Subcommittee held a hearing on the USDA budget request 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 in March 2020.33 Neither the Agriculture subcommittee nor the Appropriations Committee has
marked up a numbered FY2021 Agriculture appropriations bil .marked up a numbered FY2021 Agriculture appropriations bil .
However, on November 10, 2020, the Senate Appropriations Committee majority released drafts 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 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 release of the draft bil s was intended to further negotiations on annual appropriations between
the House and the Senatewith the House.35 Hereinafter, .35 Hereinafter, references to the Senate Agriculture appropriations bil references to the Senate Agriculture appropriations bil
refer to the Senate Appropriations refer to the Senate Appropriations Committee majority draft bil and its accompanying draft 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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explanatory statement. The Senate draft for Agriculture appropriations would The Senate draft for Agriculture appropriations would providehave provided $23.3 bil ion in $23.3 bil ion in discretionary discretionary
appropriations, an increase of $154 mil ion (+0.7%) over the regular annual FY2020 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 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 bilexcluding the CFTC. Like the House-passed bil , the Senate draft bil general y general y does not include
did not include most of the reductions proposed by the Administration. most of the reductions proposed by the Administration.
Table 3 provides details of the Senate draft at the agency levelprovides details of the Senate draft at the agency level; Table 2 summarizes it by titles of
the bil .. The primary changes in the Senate draftThe primary changes in the Senate draft, compared compared withto the House bil that comprised the $345 mil ion reduction included relatively less than the House bil the House-passed bil , that
comprise the $345 mil ion difference from the House bil include relatively less for the following: for the following:
  Rural e-Connectivity Pilot Program (ReConnect; -$590 million). .
  Rural Development (-$127 million), mostly from less for the Rural Utilities mostly from less for the Rural Utilities
Service (-$83 mil ion), salaries and expenses (-$54 mil ion), and the Rural 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 Business Cooperative Service (-$13 mil ion), offset by more than the House bil
for the Rural Housing Service (+$23 mil ion). for the Rural Housing Service (+$23 mil ion).
  Foreign assistance (-$73 million), including less than the House bil for Food , including less than the House bil for Food
for Peace Title II grants (-$50 mil ion) and McGovern-Dole (-$15 mil ion). for Peace Title II grants (-$50 mil ion) and McGovern-Dole (-$15 mil ion).
  Agricultural agencies (-$37 mil ion), including less than the House including less than the House bil for the for the
Food Food Safety Inspection Service (-$18 mil ion), the AnimalSafety Inspection Service (-$18 mil ion), the Animal and Plant Healthand Plant Health Inspection
Inspection Service (-$13 mil ion), and Service (-$13 mil ion), and the Farm Production and ConservationFarm Production and Conservation
mission area (-$6 mil ion). (-$6 mil ion).
  Food and Drug Administration (-$7 million)..
The Senate draft would The Senate draft would includehave included more than the House-passed bil for the following: more than the House-passed bil for the following:
  Domestic nutrition assistance programs; +$402 million), including more for , including more for
the base amount for WIC (+$250 mil ion) and less of a rescission from prior-year 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 WIC balances (+$250 mil ion), offset by relatively less than the House bil for
the Commodity Assistance Program (-$27 mil ion). the Commodity Assistance Program (-$27 mil ion).
  Other appropriations (+$38 million), including more than the House bil for including more than the House bil for
various miscel aneous amounts in the General Provisions title. various miscel aneous amounts in the General Provisions title.
  Administrative accounts (+$63 million), mostly more for accounts that were mostly more for accounts that were
reduced in the House-passed bil as offsets for floor amendments. reduced in the House-passed bil as offsets for floor amendments.
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-. Congressional Research Service 11 link to page 17 Agriculture and Related Agencies: FY2021 Appropriations Continuing Resolution
In the absence of any enacted FY2021 appropriations on October 1, 2020, Congress passed a 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 continuing resolution (CR) to continue operations and prevent a government shutdown. The CR
providesfirst CR provided funding until December 11, 2020 (P.L. 116-159, Division A). 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.
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 continues Four subsequent, shorter continuing resolutions (P.L. 116-215, P.L. 116-225, P.L. 116-226, and P.L. 116-246) continued the terms of the first CR until December 28, 2020. A final consolidated appropriations act (P.L. 116-260) was signed on December 27, which supplanted the last CR. 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  §101 of P.L. 116-159 continued the terms of the FY2020 Agriculture the terms of the FY2020 Agriculture Appropriations Act Appropriations Act (§101) with a with a
proviso for rural development in the anomalies belowproviso for rural development in the anomalies below; and.
  provides§111 of P.L. 116-159 provided sufficient funding to maintain mandatory program sufficient funding to maintain mandatory program levels, including for levels, including for
nutrition programs (nutrition programs (§111).38 This is similar to the approach taken in recent years.as done in to previous years’ CRs).38
Special provisions (anomalies) in a CR may adjust prior-year amounts or make specific Special provisions (anomalies) in a CR may adjust prior-year amounts or make specific
administrative changes. Nine anomalies administrative changes. Nine anomalies applyin the first CR (P.L. 116-159) applied specifical y to the specifical y to the Agriculture appropriation:39 Agriculture appropriation:39
  Rural Water and Waste Disposal Program (§116). This provision This provision providesprovided the the
same loan levels as in FY2020 but same loan levels as in FY2020 but doesdid not provide appropriated loan subsidies. not provide appropriated loan subsidies.
For FY2021, the program is projected to have a negative subsidy rate, meaning 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 that the cost of providing loans is less than estimated repayments and fees.40
  Summer Food for Children Demonstrations (§117). This provision al . This provision al owsowed
USDA to spend discretionary funds at a rate USDA to spend discretionary funds at a rate so that the program that the program iswas operational operational by by
May 2021. Similar provisions have been part of previous CRs and May 2021. Similar provisions have been part of previous CRs and include included the the
Summer Electronic Benefit Transfer demonstration.41 Summer Electronic Benefit Transfer demonstration.41
  Commodity Supplemental Food Program (§118). This provision al This provision al owsowed the the
USDA to spend discretionary funds at a rate necessary to maintain the program’s USDA to spend discretionary funds at a rate necessary to maintain the program’s
current caseload to distribute food to low-income seniors. current caseload to distribute food to low-income seniors.
  Farm Loan Programs (§119). This provision al This provision al owsowed USDA to spend USDA to spend
discretionary funds at a rate necessary to cover any backlog of farm ownership 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. 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

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. 38 T he OMB bulletin about implementing CRs (footnot38 T he OMB bulletin about implementing CRs (footnote 36) identified the scope of mandatory programs that were ) 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). 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 T hese included nearly all of the mandatory agriculture programs: SNAP, child nutrition, CCC, crop insurance, Section
32, and the dairy indemnity program. 32, and the dairy indemnity program.
39 For more detailed descriptions, see 39 See CRS Report R46582, CRS Report R46582, Overview of Continuing Appropriations for FY2021 (P.L.
116-159). .
40 OMB, 40 OMB, President’s Budget FY 2021, “Federal Credit Supplement Spreadsheets: Direct Loans: Subsidy Rates, , “Federal Credit Supplement Spreadsheets: Direct Loans: Subsidy Rates,
Obligations, and Average Loan Size,” https://www.whitehouse.gov/omb/supplemental-materials. Obligations, and Average Loan Size,” https://www.whitehouse.gov/omb/supplemental-materials.
41 For more information, see CRS In Focus IF11633, 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.
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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 Congressional Research Service 12 Agriculture and Related Agencies: FY2021 Appropriations  Livestock Mandatory Reporting Extension (§120). This provision extended the Livestock Mandatory Reporting Act for the duration of the CR. The act had been reauthorized four times since it was enacted in 1999.42  U.S. Grain Standards Act Extension (§121). This provision reauthorized expiring parts of the otherwise permanently authorized U.S. Grain Standards Act. It extended authority to collect fees and reauthorized appropriations.43  Extension of Hemp Pilot Program in 2014 Farm Bill (§122). This provision extended the hemp pilot program from the 2014 farm bil until September 30, 2021. This extension al owed hemp production to continue under the pilot program instead of a new hemp program established in the 2018 farm bil .44  Over-the-Counter Drug Monograph User Fee Act (§123). This provision required that, during the CR, over-the-counter (OTC) monograph user fees were credited to the FDA salaries and expenses account.45  Commodity Credit Corporation (§173). This provision provided the appropriation used by the CCC to reimburse the Treasury for its line of credit before CCC to reimburse the Treasury for its line of credit before
completion of a required audited report the end of the fiscal year. Without completion of a required audited report the end of the fiscal year. Without the the
anomaly, CCC may have exhausted its borrowing authority in October anomaly, CCC may have exhausted its borrowing authority in October 2020.46 Consolidated Appropriations Act A full-year FY2021 Consolidated Appropriations Act (P.L. 116-260) was enacted on December 27, 2020, with Agriculture appropriations in Division A. The joint explanatory statement was initial y published in the Congressional Record,47 and it was later republished as a House committee print.48 The enacted FY2021 Agriculture appropriation provides $23.4 bil ion in discretionary appropriations, an increase of $219 mil ion (+0.9%) over the regular annual FY2020 appropriation (on a comparable basis that does not include the CFTC). This is about $280 mil ion less than the House-passed bil and $65 mil ion more than the Senate draft. Mandatory spending for accounts that are regularly carried in the appropriations act increased to $181 bil ion in FY2021, an increase of $52 bil ion (+40%) over FY2020. The increase was largely as a result of coronavirus supplemental assistance acts that had been enacted separately.49 These mandatory amounts do not affect the discretionary appropriations that are set in the Consolidated Appropriations Act. 42 T he Livestock Mandatory Reporting Act was extended to September 30, 2021, in P.L. 116-260, Division O, §401. 43 T he U.S. Grain Standards Act was reauthorized through September 30, 2025, in P.L. 116-216 on December 11, 2020. 44 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. 452020.44

43 For additional information about regulation of OT C monograph drugs, see the section “Subtitle F—Over-the-Counter For additional information about regulation of OT C monograph drugs, see the section “Subtitle F—Over-the-Counter
Drugs” in CRS Report R46334, Drugs” in CRS Report R46334, Selected Health Provisions in Title III of the CARES Act (P.L. 116 -136). .
4446 For additional information on the CCC, see CRS Report R44606, For additional information on the CCC, see CRS Report R44606, The Commodity Credit Corporation: In Brief.
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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

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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
28,646.0
—
27,240.0
28,646.0
28,346.0
—
+0.0
-300.0
Rural Business-Cooperative Service
98.6
105.0
20.5
110.4
98.2
84.6
—
-6.8
-20.5
RBCS Loan Authorityd
1,026.4
1,088.9
1,000.0
1,500.0
1,088.9
1,438.9
—
+0.0
+350.0
CRS-16

---

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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
Rural Utilities Service
620.2g
750.3g
25.0
942.6
725.1g
642.5
—
-25.1
-107.8
RUS Loan Authorityd
8,419.9
8,401.2
—
7,518.3
8,401.2
8,401.9
—
+0.0
+0.7
Under Secretaryh
—h
0.8
—
1.0
0.8
0.8
—
+0.0
+0.0
Subtotal, Title III
3,011.7g
3,240.6g
45.5g
3,410.5
3,249.0g
3,121.2
—
+8.4
-119.4
Subtotal, RD Loan Authorityd
37,740.0
38,136.1
1,000.0
36,258.3
38,136.1
38,186.8
—
+0.0
+50.7
Title IV. Domestic Food Programs









Child Nutrition Programs (M)
23,140.8
23,615.1
8,800.0
25,040.9
25,131.4
25,111.4
—
+1,516.3
+1,496.3
WIC Program
6,075.0
6,000.0
500.0
5,451.5
5,750.0
6,000.0
—
-250.0
+0.0
SNAP, Food and Nutrition Act Programs (M)
73,476.9
67,886.3
15,910.0i
68,281.4
68,805.9
68,322.6
—
+919.7
+436.4
Commodity Assistance Programs
322.1
344.2
850.0
80.7
390.7
362.2
—
+46.5
+18.0
Nutrition Programs Administration
164.7
155.9
—
155.3
156.4
157.5
—
+0.5
+1.6
Under Secretary
0.8
0.8
—
0.8
0.8
0.8
—
+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
—
-182.7
+20.0
Mandatory (M)
96,560.0
91,436.3
24,710.0
93,309.8
93,851.9
93,368.6
—
+2,415.7
+1,932.4
Subtotal
103,180.3
98,002.3
26,060.0
99,010.5
100,235.3
99,954.7
—
+2,232.9
+1,952.3
Title V. Foreign Assistance









Foreign Agricultural Service
213.9
215.5
4.0
193.7
222.2
214.6
—
+6.7
-0.9
Food for Peace Title II, and admin. expenses
1,500.1g
1,725.1
—
0.1
1,775.1
1,725.1
—
+50.0
+0.0
McGovern-Dole Food for Education
210.3
220.0
—
0.0
235.0
220.0
—
+15.0
+0.0
CCC Export Loan Salaries
8.8
6.4
—
6.4
6.4
6.4
—
+0.0
+0.0
Office of Codex Alimentarius
4.0
4.8
—
4.8
4.8
4.8
—
+0.0
+0.0
CRS-17

---

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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
Under Secretary
0.9
0.9
—
0.9
0.9
0.9
—
+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
Title VI. Related Agencies









Food and Drug Administration
3,080.5
3,171.5
163.0
3,220.4
3,218.3
3,211.5
—
+46.8
+40.0
Commodity Futures Trading Commissionj
[268.0]
315.0
—
226.5
304.0
[304.0]
—
-11.0
-11.0
Subtotal, Title VI
[3,348.5]
3,486.5
163.0
3,446.9
3,522.3
[3,515.5]
—
+35.8
+29.0
Title VII. General Provisions









Changes in Mandatory Programs, CHIMPSk









a. Conservation programs
[-60.2]l
-60.2
—
-60.2
-60.2
-60.2
—
+0.0
+0.0
b. Nutrition programs
+5.0
+9.0
—
+0.0
+12.0
+9.0
—
+3.0
+0.0
c. Farm Production & Conservation Bus. Ctr.
[+60.2]l
+60.2
—
+60.2
+60.2
+60.2
—
+0.0
+0.0
d. Other CHIMPS and mandatory rescissions
+10.0
—
—
—
—
—
—
—
—
Subtotal, CHIMPS (Table B-1)
+15.0
+9.0
—
+0.0
+12.0
+9.0
—
+3.0
+0.0
Rescissions (discretionary)m (Table B-2)
-505.0
-1,015.1
—
-1,200.0
-1,000.0
-809.0
—
+15.1
+206.1
Other appropriations (Table B-3)









a. Emergency/disaster programs
—
535.0n
—
—
—
—
—
-535.0
-535.0
b. Water and Waste Water
75.0
—
—
—
—
—
—
—
—
c. Broadband piloto
125.0
300.0
100.0
0.0o
915.0
325.0
—
+615.0
+25.0
d. Food for Peace
216.0
—
—
—
—
—
—
—
—
e. Coronavirus Food Assistance Program
—
—
12,500.0p
—
—
—
—
—
—
f. Other appropriations
77.5
140.3
—
—
121.4
158.9
—
-18.9
+18.6
Subtotal, Other appropriations
493.5
975.3
12,600.0
0.0
1,036.4
483.9
—
+61.1
-491.4
Subtotal, Title VII
3.5
-30.8
12,600.0
-1,200.0
48.4
-316.1
—
+79.2
-285.4
CRS-18

---

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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
Scorekeeping Adjustmentsq (









Table B-4Table B-4)
Emergency declaration in this bil
—
-535.0n
—a
—
—
—
—
+535.0
+535.0
Other scorekeeping adjustments
-404.0
-398.0
—
-424.0
-421.0
-421.0
—
-23.0
-23.0
Subtotal, Scorekeeping adjustmentsq
-404.0
-933.0
—
-424.0
-421.0
-421.0
—
+512.0
+512.0
Totals









Discretionary: Senate basis w/o CFTCj
23,032.7 [23,169.1]
14,299.3
19,680.2 [23,668.4]
23,323.4
—
+499.3
+154.3
Discretionary: House basis w/ CFTCj
[23,300.7]
23,484.1
14,299.3
19,906.7
23,972.4
[23,627.4]
—
+488.3
+143.3
Mandatory (M)
128,755.1
129,108.8
38,710.0
128,939.3
129,481.4
128,998.1
—
+372.6
-110.7
Total: Senate basis w/o CFTC
151,787.8 [152,278.0]
53,009.3
148,619.4 [153,149.9]
152,321.5
—
+871.9
+43.6
Total: House basis w/ CFTC
[152,055.8]
152,593.0
53,009.3
148,845.9
153,453.9 [152,625.5]
—
+860.9
+32.6 (CCC). 47 U.S. Congress, Congressional Record, vol. 166, no. 218 (December 21, 2020), Book III. 48 U.S. Congress, House Committee on Appropriations, Consolidated Appropriations Act, 2021, committee print on H.R. 133/P.L. 116-260, 117th Cong., 1st sess., March 2021, 43-749 (Washington, DC: GPO, 2021). 49 For context, see CRS Report R46681, USDA Nutrition Assistance Programs: Response to the COVID-19 Pandemic, and CRS In Focus IF11764, U.S. Agricultural Aid in Response to COVID-19. Congressional Research Service 13 link to page 20 link to page 27 link to page 26 link to page 29 Agriculture and Related Agencies: FY2021 Appropriations Table 3 provides details of the enacted appropriation at the agency level. The primary changes that comprise the $219 mil ion increase from FY2020 levels include an increase in budget authority for the following:  Rural e-Connectivity Pilot Program (ReConnect; +$231 million, +77%), to expand rural broadband.50 This is in the General Provisions title.  Agricultural research (+$124 million), mostly ARS salaries and expenses (+$77 mil ion, +5%) and grant support for NIFA (+$42 mil ion, +3%).51  Domestic nutrition assistance programs (+$91 mil ion, +1.4%), mostly for commodity assistance programs.  Agricultural agencies (+$74 million), including more for FPAC (+$27 mil ion, +13%), FSIS (+$21 mil ion, +2%), and APHIS (+$21 mil ion, +2%).  Food and Drug Administration (+$43 million, +1.4%).  Foreign assistance (+$31 million, +1.4%), including more for Food for Peace grants (+$15 mil ion, +0.9%) and McGovern-Dole (+$10 mil ion, +4.5%).  Other appropriations (+$52 million, +37%) for various amounts in the General Provisions title (not including the ReConnect program above; see Table B-3).  Agricultural Quarantine Inspection (AQI, +$635 million), a supplemental amount to replace lost user fees at ports of entry during the pandemic. Changes in the enacted appropriation also included reductions from FY2020 levels for the following:  Agricultural research building and facilities (-$157 million, -81%).  Ebola preparation (-$535 million), a supplemental amount in FY2020.  Rescissions (-$247 mil ion), mostly from a greater rescission of unspent authority from WIC than in FY2020 (see Table B-2).  Scorekeeping Adjustments (-$123 million), mostly from increasing the emergency declaration over FY2020 levels by the amount that AQI in FY2021 exceeded the Ebola supplemental in FY2020 (see Table B-4). 50 See CRS In Focus IF11262, USDA’s ReConnect Broadband Pilot Program . 51 See CRS Report R46341, Federal Research and Development (R&D) Funding: FY2021 . Congressional Research Service 14 link to page 23 link to page 25 link to page 23 link to page 23 Agriculture and Related Agencies: FY2021 Appropriations Table 3. Agriculture and Related Agencies Appropriations by Agency, FY2019-FY2021 Budget authority in mil ions of dol ars FY2019 FY2020 FY2021 Change from FY2020 to FY2021 enacted P.L. 116- P.L. 116- Admin. House- Senate P.L. 116- Agency or major program 6 94 requesta passed draft 260 $ % Title I. Agricultural Programs Departmental Admin. (Table A-1) 390.4 472.8 614.7 437.8 500.7 480.2 +7.4 +1.6% Research, Education and Economics Agricultural Research Service 1,684.5 1,607.1 1,418.0 1,464.9 1,510.1 1,527.5 -79.6 -5.0% National Institute of Food and Agriculture 1,471.3 1,527.4 1,590.8 1,578.3 1,538.9 1,570.1 +42.7 +2.8% National Agricultural Statistics Service 174.5 180.3 177.5 183.4 184.4 183.9 +3.6 +2.0% Economic Research Service 86.8 84.8 62.1 86.7 85.7 85.5 +0.7 +0.8% Under Secretary 0.8 0.8 6.8 6.1 0.8 0.8 +0.009 +1.1% Marketing and Regulatory Programs Animal and Plant Health Inspection Svc. 1,014.3 1,045.9 1,035.6 1,073.0 1,060.3 1,067.4 +21.5 +2.1% Agricultural Marketing Service 160.3 188.2 148.4 190.1 188.3 189.6 +1.4 +0.8% Section 32 (M) 1,374.0 1,404.0 1,359.9 1,359.9 1,359.9 1,359.9 -44.1 -3.1% Under Secretary 0.9 0.8 0.9 0.8 0.8 0.8 +0.009 +1.1% Food Safety Food Safety and Inspection Service 1,049.3 1,054.3 1,092.4 1,088.6 1,070.1 1,075.7 +21.4 +2.0% Under Secretary 0.8 0.8 0.8 0.8 0.8 0.8 +0.009 +1.1% Subtotal, Title I Discretionary 6,033.9 6,163.1 6,148.0 6,110.5 6,141.0 6,182.2 +19.1 +0.3% Mandatory (M) 1,374.0 1,404.0 1,359.9 1,359.9 1,359.9 1,359.9 -44.1 -3.1% Subtotal 7,407.9 7,567.1 7,507.8 7,470.4 7,500.9 7,542.1 -25.0 -0.3% Title II. Farm Production & Conservation Farm and Commodity Programs Business Center 216.4 203.9 243.6 232.2 232.5 231.3 +27.4 +13.5% Farm Service Agencyb 1,494.2 1,541.7 1,484.8 1,542.7 1,528.9 1,532.6 -9.1 -0.6% FSA Farm Loans: Loan Authorityc 7,987.7 8,431.0 8,906.7 8,932.2 9,853.2 9,858.2 +1,427.2 +16.9% Risk Management Agency 58.4 58.4 59.4 59.4 60.4 60.1 +1.8 +3.0% Federal Crop Insurance Corporation (M) 15,410.6 9,959.0 8,716.0 8,716.0 8,716.0 8,748.0 -1,211.0 -12.2% Commodity Credit Corporation (M) 15,410.0 26,309.0 25,553.1 25,553.1 25,553.1 31,830.7 +5,521.7 +21.0% Conservation Programs Conservation Operations 819.5 829.6 830.2 833.8 831.9 832.7 +3.1 +0.4% Watershed and Flood Prevention 150.0 175.0 0.0 155.0 175.0 175.0 +0.0 +0.0% Watershed Rehabilitation Program 10.0 10.0 0.0 12.0 0.0 10.0 +0.0 +0.0% Under Secretary 0.9 0.9 1.1 0.9 0.9 0.9 +0.015 +1.7% Congressional Research Service 15 link to page 23 link to page 23 link to page 23 link to page 23 link to page 23 link to page 23 link to page 23 link to page 23 link to page 23 link to page 23 link to page 23 link to page 23 link to page 23 link to page 23 link to page 23 Agriculture and Related Agencies: FY2021 Appropriations FY2019 FY2020 FY2021 Change from FY2020 to FY2021 enacted P.L. 116- P.L. 116- Admin. House- Senate P.L. 116- Agency or major program 6 94 requesta passed draft 260 $ % Subtotal, Title II Discretionary 2,748.8 2,819.0 2,618.7 2,835.5 2,829.1 2,842.1 +23.2 +0.8% Mandatory (M) 30,821.1 36,268.5 34,269.6 34,269.6 34,269.6 40,579.2 +4,310.7 +11.9% Subtotal 33,569.9 39,087.5 36,888.3 37,105.1 37,098.7 43,421.4 +4,333.9 +11.1% Title III. Rural Development Salaries and Expenses (incl. transfers)d 686.8 697.8 761.5 761.9 707.3 714.0 +16.2 +2.3% Rural Housing Service 1,606.0 1,686.7 1,595.0 1,662.9 1,686.0 1,708.0 +21.3 +1.3% RHS Loan Authorityc 28,293.8 28,646.0 27,240.0 28,646.0 28,346.0 28,646.0 +0.0 +0.0% Rural Business-Cooperative Service 98.6 105.0 110.4 98.2 84.6 92.3 -12.7 -12.1% RBCS Loan Authorityc 1,026.4 1,088.9 1,500.0 1,088.9 1,438.9 1,088.9 +0.0 +0.0% Rural Utilities Service 620.2e 750.3e 942.6 725.1e 642.5 720.8 -29.4 -3.9% RUS Loan Authorityc 8,419.9 8,401.2 7,518.3 8,401.2 8,401.9 8,401.9 +0.7 +0.0% Under Secretaryf —f 0.8 1.0 0.8 0.8 0.8 +0.012 +1.5% Subtotal, Title III 3,011.7e 3,240.6e 3,410.5 3,249.0e 3,121.2 3,236.0 -4.6 -0.1% Subtotal, RD Loan Authorityc 37,740.0 38,136.1 36,258.3 38,136.1 38,186.8 38,136.8 +0.7 +0.0% Title IV. Domestic Food Programs Child Nutrition Programs (M) 23,140.8 23,615.1 25,040.9 25,131.4 25,111.4 25,118.4 +1,503.3 +6.4% WIC Program 6,075.0 6,000.0 5,451.5 5,750.0 6,000.0 6,000.0 +0.0 +0.0% SNAP, Food & Nutrition Act Program (M) 73,476.9 67,886.3 68,281.4 68,805.9 68,322.6 114,035.6 +46,149.3 +68.0% Commodity Assistance Programs 322.1 344.2 80.7 390.7 362.2 426.7 +82.5 +24.0% Nutrition Programs Administration 164.7 155.9 155.3 156.4 157.5 156.8 +0.9 +0.6% Under Secretary 0.8 0.8 0.8 0.8 0.8 0.8 +0.009 +1.1% Subtotal, Title IV Discretionary 6,620.3 6,566.0 5,700.7 6,383.3 6,586.0 6,656.8 +90.7 +1.4% Mandatory (M) 96,560.0 91,436.3 93,309.8 93,851.9 93,368.6 139,081.6 +47,645.3 +52.1% Subtotal 103,180.3 98,002.3 99,010.5 100,235.3 99,954.7 145,738.3 +47,736.0 +48.7% Title V. Foreign Assistance Foreign Agricultural Service 213.9 215.5 193.7 222.2 214.6 221.8 +6.3 +2.9% Food for Peace Title II, and admin. 1,500.1e 1,725.1 0.1 1,775.1 1,725.1 1,740.1 +15.0 +0.9% McGovern-Dole Food for Education 210.3 220.0 0.0 235.0 220.0 230.0 +10.0 +4.5% CCC Export Loan Salaries 8.8 6.4 6.4 6.4 6.4 6.4 +0.0 +0.0% Office of Codex Alimentarius 4.0 4.8 4.8 4.8 4.8 4.8 +0.030 +0.6% Under Secretary 0.9 0.9 0.9 0.9 0.9 0.9 +0.012 +1.4% Subtotal, Title V 1,938.0 2,172.7 205.9 2,244.4 2,171.8 2,204.0 +31.3 +1.4% Congressional Research Service 16 link to page 23 link to page 23 link to page 23 link to page 23 link to page 23 link to page 26 link to page 23 link to page 26 link to page 27 link to page 23 link to page 23 link to page 23 link to page 23 link to page 29 link to page 23 link to page 23 link to page 23 link to page 23 Agriculture and Related Agencies: FY2021 Appropriations FY2019 FY2020 FY2021 Change from FY2020 to FY2021 enacted P.L. 116- P.L. 116- Admin. House- Senate P.L. 116- Agency or major program 6 94 requesta passed draft 260 $ % Title VI. Related Agencies Food and Drug Administration 3,080.5 3,171.5 3,220.4 3,218.3 3,211.5 3,214.7 +43.3 +1.4% Commodity Futures Trading Commissiong [268.0] 315.0 226.5 304.0 [304.0] [304.0] -11.0 -3.5% Subtotal, Title VI [3,348.5] 3,486.5 3,446.9 3,522.3 [3,515.5] [3,518.7] +32.3 +0.9% Title VII. General Provisions Changes in Mandatory Programsh a. Conservation programs [-60.2]i -60.2 -60.2 -60.2 -60.2 -60.2 +0.0 +0.0% b. Nutrition programs +5.0 +9.0 +0.0 +12.0 +9.0 +12.0 +3.0 +33.3% c. Farm Prod, & Conservation Bus. Ctr. [+60.2]i +60.2 +60.2 +60.2 +60.2 +60.2 +0.0 +0.0% d. Agriculture Quarantine Inspection — — — — — +635.0 +635.0 — e. Other CHIMPS, mandatory rescissions +10.0 — — — — — — — Subtotal, CHIMPS (Table B-1) +15.0 +9.0 +0.0 +12.0 +9.0 +647.0 +638.0 +7089% Rescissions (discretionary)j (Table B-2) -505.0 -1,015.1 -1,200.0 -1,000.0 -809.0 -1,262.0 -246.9 +24.3% Other appropriations (Table B-3) a. Emergency/disaster programs — 535.0k — — — — -535.0 -100.0% b. Water and Waste Water 75.0 — — — — — — — c. Broadband pilotl 125.0 300.0 0.0l 915.0 325.0 531.0 +231.0 +77.0% d. Food for Peace 216.0 — — — — — — — e. Other appropriations 77.5 140.3 — 121.4 158.9 192.6 +52.3 +37.2% Subtotal, Other appropriations 493.5 975.3 0.0 1,036.4 483.9 723.6 -251.7 -25.8% Subtotal, Title VII 3.5 -30.8 -1,200.0 48.4 -316.1 108.6 +139.3 -452.8% Scorekeeping Adjustmentsm (Table B-4) Emergency declaration in this bil — -535.0k — — — -635.0 -100.0 +18.7% Other scorekeeping adjustments -404.0 -398.0 -424.0 -421.0 -421.0 -421.0 -23.0 +5.8% Subtotal, Scorekeeping am -404.0 -933.0 -424.0 -421.0 -421.0 -1,056.0 -123.0 +13.2% Totals Discretionary: Senate basis w/o CFTCg 23,032.7 [23,169.1] 19,680.2 [23,668.4] 23,323.4 23,388.4 +219.3 +0.9% Discretionary: House basis w/ CFTCg [23,300.7] 23,484.1 19,906.7 23,972.4 [23,627.4] [23,692.4] +208.3 +0.9% Mandatory (M) 128,755.1 129,108.8 128,939.3 129,481.4 128,998.1 181,020.7 +51,911.9 +40.2% Total: Senate basis w/o CFTC 151,787.8 152,278.0 148,619.4 153,149.9 152,321.5 204,409.1 +52,131.2 +34.2% Total: House basis w/ CFTC 152,055.8 152,593.0 148,845.9 153,453.9 152,625.5 204,713.1 +52,120.2 +34.2%
Source: CRS, using appropriations text and reports and unpublished CBO tables. House-passed refers to H.R. 7608, Division B. Senate draft refers to the 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 Senate Appropriations Committee draft from November 10, 2020. 10, 2020.
Notes: Amounts are nominal discretionary budget authority in mil ions of dol ars unless labeled otherwise. Amounts are nominal discretionary budget authority in mil ions of dol ars unless labeled otherwise. “(M)” indicates that the account is mandatory authority (or “(M)” indicates that the account is mandatory authority (or
primarily mandatory authority). Bracketed amounts are 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. 116-139), al of which was emergency spending.
Although amounts were not designated as mandatory, they are grouped here for comparison to accounts that are in the annual ap propriations. See detail in CRS In
Focus IF11491, Supplemental Appropriations for Agriculture and Related Agencies Due to COVID-19.
bprimarily mandatory authority). Bracketed amounts Congressional Research Service 17 link to page 27 link to page 27 Agriculture and Related Agencies: FY2021 Appropriations are not in the official totals due to differing House-Senate jurisdiction for CFTC but are shown for comparison. Excludes coronavirus supplemental appropriations acts, except as incorporated into mandatory appropriations. a. The request is based on current law and does not reflect. The request is based on current law and does not reflect the Administration’s various legislative proposals. the Administration’s various legislative proposals.
cb. Includes regular FSA salaries and expenses plus transfers for farm loan program salaries and administrative. Includes regular FSA salaries and expenses plus transfers for farm loan program salaries and administrative expenses. Also includes farm loan programexpenses. Also includes farm loan program loan subsidy, loan subsidy,
State Mediation Grants, Dairy Indemnity Program (mandatory funding), and Grassroots Source Water Protection Program.State Mediation Grants, Dairy Indemnity Program (mandatory funding), and Grassroots Source Water Protection Program. Does Does not include appropriations to the not include appropriations to the
Foreign Agricultural Service for export loans and P.L. 480 administration that are transferred to FSA. Foreign Agricultural Service for export loans and P.L. 480 administration that are transferred to FSA.
dc. Loan authority is the amount of loans that can be made or guaranteed with a loan subsidy. This amount is . 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. not added in the budget authority subtotals or totals.
e. The CARES Act (P.L. 116-136) provided $14 bil ion of reimbursement to the CCC after a June 2020 financial statement. Alth ough it is not budget authority for
direct coronavirus support and not counted in CARES Act accounting, it is comparable to the CCC reimbursement in regular annu al appropriations.
f.
d. Rural Development salaries and expenses include a base amount plus transfers from the three rural Rural Development salaries and expenses include a base amount plus transfers from the three rural development agencies. Amounts presented for the agencies development agencies. Amounts presented for the agencies
therefore therefore include program funds for loans and include program funds for loans and grants. egrants.
CRS-19

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link to page 32 link to page 32
g. Excludes a portion of the other appropriations that are provided separately in General Provisions (see. Excludes a portion of the other appropriations that are provided separately in General Provisions (see Table B-3).
h. f. The USDA-initiated reorganization in 2017 created an “Assistant to the Secretary for Rural Development”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 undersecretarySenate-confirmed undersecretary position. The 2018 farm bilposition. The 2018 farm bil reinstated the undersecretaryreinstated the undersecretary position, and the FY2020 appropriation position, and the FY2020 appropriation fu ndsfunds it as such. it as such.
i.
In addition to the specified supplemental amounts for the SNAP account in the CARES Act ( P.L. 116-136), the Families First Coronavirus Response Act (P.L. 116-
127, §1101) authorized and appropriated open-ended funding for the Pandemic Electronic Benefit Transfer (P-EBT) program. The amount displayed does not include
the P-EBT funding.
j.
g. Jurisdiction for the Commodity Futures Trading Commission (CFTC) is in the House AgricultureJurisdiction for the Commodity Futures Trading Commission (CFTC) is in the House Agriculture Appropriations Subcommittee and the Senate Financial ServicesAppropriations Subcommittee and the Senate Financial Services
Appropriations Subcommittee. AfterAppropriations Subcommittee. After FY2008, CFTC is carriedFY2008, CFTC is carried in the enacted Agriculture appropriations in evenin the enacted Agriculture appropriations in even -numbered fiscal years.-numbered fiscal years. It is always carriedIt is always carried in House in House
Agriculture subcommitteeAgriculture subcommittee markup but never in Senate Agriculture subcommitteemarkup but never in Senate Agriculture subcommittee markup. Bracketedmarkup. Bracketed amounts are not in the Agriculture appropriations totals due amounts are not in the Agriculture appropriations totals due
to differing House-Senate jurisdiction for CFTC but are shown for comparison. to differing House-Senate jurisdiction for CFTC but are shown for comparison.
k. Includes reductions (limitations and rescissions) and increases to mandatory programs that are known as CHIMPS.
lh. Changes in Mandatory Program Spending (CHIMPS) include temporary increases and reductions (from limitations and rescissions) to mandatory programs that are temporary via appropriations acts. i. .
These bracketed amounts were not in the official CBO scoring of CHIMPS. Appropriations acts in FY2018 and FY2019 transferred These bracketed amounts were not 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 Business Center, but the official CBO scoring of appropriations at that timeinto the Farm Production and Conservation Business Center, 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. For morethe FY2020 scoring reflects. For more background, seebackground, see CRS Report R46011, CRS Report R46011, FY2020 Appropriations for Agricultural Conservation. .
m. j. Rescissions are actions that permanently reduce a budget authority subsequent to an enacted appropriation. They score Rescissions are actions that permanently reduce a budget authority subsequent to an enacted appropriation. They score budgeta rybudgetary savings. Any rescissions from savings. Any rescissions from
mandatory programsmandatory programs are included with the CHIMPS. are included with the CHIMPS.
nk. Emergency appropriations in FY2020 include $535 mil ion for Ebola and $1.5 bil ion for the Wildfires and . Emergency appropriations in FY2020 include $535 mil ion for Ebola and $1.5 bil ion for the Wildfires and Hurricane Indemnity Program, which was offset with $1.5 Hurricane Indemnity Program, which was offset with $1.5
bil ion in rescissions bil ion in rescissions (Table B-3).
o. l. The ReConnect Broadband Pilot Program that was created in the FY2018 appropriation has been funded by separate appropriationThe ReConnect Broadband Pilot Program that was created in the FY2018 appropriation has been funded by separate appropriation in the Generalin the General Provisions Provisions title. In title. 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,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, in FY2020,
appropriators direct $555 mil ion to ReConnect from $300 mil ion appropriated in Generalappropriators direct $555 mil ion to ReConnect from $300 mil ion appropriated in General Provisions and $255 mil ion from the Cushion of Credit account. For Provisions and $255 mil ion from the Cushion of Credit account. For
FY2021, the Administration requests $250 mil ion in the Rural Utilities Service account rather than through General Provisions. FY2021, the Administration requests $250 mil ion in the Rural Utilities Service account rather than through General Provisions.
p. Includes $9.5 bil ion specified in the CARES Act for payments to farmers and $3 bil ion from indefinite authority in the Families First Coronavirus Relief Act that
USDA used for the Farmers to Families Food Boxes Program.
qm. “Scorekeeping adjustments” are not necessarily appropriated items and may not be shown in . “Scorekeeping adjustments” are not necessarily appropriated items and may not be shown in Appropriations Committee tables butAppropriations Committee tables but are part of the official CBO are part of the official CBO
score (accounting) of the bil .score (accounting) of the bil . They predominantly include “negative subsidies” in loan program accounts (mostlyThey predominantly include “negative subsidies” in loan program accounts (mostly from receipt of fees) and adjustments for from receipt of fees) and adjustments for
emergency designations in the bil . emergency designations in the bil .

CRS-20 Congressional Research Service 18

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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.4552 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 general y limited to the the force of law if they are included in the act’s text, but their effect is general y 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 the force of text in an actlaw, it often explains congressional intent, it often explains congressional intent, which the that agencies may be agencies may be
expected to follow. expected to follow.
In the past, Congress has Congress has saiddirected that committee reports and the joint explanatory statement need to that committee reports and the joint explanatory statement need to
be read together to capture be read together to capture al of the congressional intent for a fiscal yearcongressional intent. For example, the . For example, 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:
Congressional Directives. The statement is silent on provisions that were in both the
House Report (H.Rept. 116-107) and Senate Report (S.Rept. 116-110) that remain
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
and indicates congressional intentions. The statement, while repeating some report
language for emphasis, does not intendexplanatory statement for the FY2021 appropriation instructs that the House report should be read together with the conference agreement (the Senate draft was not official y introduced, thus it does not carry the same weight). The explanatory statement accompanying this division is approved and indicates congressional intent. Unless otherwise noted, the language set forth in House Report 116–446 carries the same weight as language included in this explanatory statement and should be complied with unless specifically addressed to the contrary in this explanatory statement. While some language is repeated for emphasis, it is not intended to negate the language referred to above unless to negate the language referred to above unless
expressly provided herein.expressly provided herein.46
COVID-19 Supplemental Appropriations in FY2020
In March and April 2020 In cases in which the House or this explanatory statement has directed the submission of a report, such report is to be submitted to both the House and Senate Committees on Appropriations no later than 60 days after enactment, unless otherwise directed.53 COVID-19 Supplemental Appropriations In March, April, and December 2020, and in March 2021, Congress passed and the President , Congress passed and the President signed four supplemental 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-19.47 These acts These acts in FY2020 include support for programs in the include support for programs in the
jurisdiction of the Agriculture appropriations subcommittees.jurisdiction of the Agriculture appropriations subcommittees. The four acts are54 Al of this spending was designated as emergency spending and not counted against budget caps. The acts are as follows: :
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 First Coronavirus Response Act (P.L. 116-127, March 18, 2020); 2. Families First Coronavirus Response Act (P.L. 116-127, March 18, 2020);
3. 3. Coronavirus Aid, Relief, and Economic Security Act (CARES Act; CARES Act (P.L. 116-136, P.L. 116-136, March 27, 2020); 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 bil ion of appropriations to programs in the jurisdiction of the
Agriculture appropriations subcommittees. In addition, the second act authorized indefinite
funding for commodity food assistance, from which the USDA has announced that it would
obligate $3 bil ion to date.48 The third act provided for $14 bil ion of reimbursement for the CCC; 5. FY2021 Consolidated Appropriations Act (P.L. 116-260, Division N, Additional Coronavirus Response and Relief, December 27, 2020); and 6. American Rescue Plan Act of 2021 (ARPA; P.L. 117-2, March 11, 2021).

4552 See CRS Report RL30240, See CRS Report RL30240, Congressional Oversight Manual. .
4653 U.S. Congress, House Committee on Appropriations, U.S. Congress, House Committee on Appropriations, Further Consolidated Appropriations Act, 20202021, committee , committee
print, 116th Cong., 2nd Sess., January 2020, 38-679print on H.R. 133/P.L. 116-260, 117th Cong., 1st sess., March 2021, 43-749 (Washington, DC: GPO, (Washington, DC: GPO, 2020), p. 305.
472021), pdf p. 69. 54 CRS In Focus IF11491, CRS In Focus IF11491, Supplemental Appropriations for Agriculture and Related Agencies Due to COVID-19. .
48 T he Farmers to Families Food Box Program, discussed in CRS Report R46347, COVID-19, U.S. Agriculture, and
USDA’s Coronavirus Food Assistance Program (CFAP).
Congressional Research Service
21

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link to page 7 link to page 20 Congressional Research Service 19 Agriculture and Related Agencies: FY2021 Appropriations Appendix A. USDA Departmental AdministrationAgriculture and Related Agencies: FY2021 Appropriations

that, while not immediately available for obligation and not counted as COVID-19 relief, is
comparable to the regular CCC reimbursements in annual Agriculture appropriations acts and is
included in this report.
Columns labeled “COVID-19 Acts” in Table 2, Table 3, and other appendix tables summarize
these combined $53 bil ion of appropriations through the coronavirus supplemental acts. Al of
this spending is designated as emergency spending and not counted against budget caps.

Congressional Research Service
22

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Appendix A. Appropriations in Administrative Accounts
Table A-1. USDA Departmental Administration Appropriations
Budget authority in mil ions of dol ars Budget authority in mil ions of dol ars
FY2019
FY2020
FY2021
Change from FY2020 to FY2021 enacted USDA Departmental Change: FY2020 to...

P.L. 116-
COVIDP.L. 116-
Admin.
House-
Senate
House-
Senate
Agency or major program
P.L. 116-6 94
19 ActsP.L. 116- Administration 6 94
request
passed
draft
Enacted
passed
draft260 $ %
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 5.1
—5.1
+0. +0.10
+ +0.1
Assistant to the 1.0% Asst. to Sec. for Rural Sec. for Rural Developmenta
Dev. 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
1.3 1.3
—
-0.2 -0.2
- -0.211.6%
Public Partnership and Public Partnership and EngagementbEngagement
4.7 4.7
6.2 6.2
—
2.0 2.0
6.5 6.5
6.2 6.2
—7.0
+0. +0.38
+ +0.012.7%
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
0.9 0.9
—
+0.0+0.006
+0. +0.07%
Departmental Administration Departmental Administration
22.3 22.3
21.4 21.4
—
27.2 27.2
19.5 19.5
21.5 21.5
—
-1.9
+0.121.4 +0.1 +0.3%
Asst. Sec. Congressional Relations Asst. Sec. Congressional Relations
3.9 3.9
3.9 3.9
—
3.9 3.9
3.9 3.9
3.9 3.9
—3.9
+0. +0.104
+ +0.11.0%
Office of Communications Office of Communications
7.5 7.5
7.3 7.3
—
7.4 7.4
7.4 7.4
7.4 7.4
—7.3
+0.1 +0.1
+ +0.11.1%
Subtotal
46.6
46.1
—
47.8
44.6
46.3
—
-1.5
+0.247.0 +0.9 +1.9%
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 23.8
—
-2.8
-0.324.2 +0.2 +0.7%
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 15.4
—15.4
+0.2 +0.2
+ +0.21.1%
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 9.7
—9.6
+0.1 +0.1
+ +0.11.1%
Subtotal
46.0
48.8
—
57.1
46.4
48.9
—
-2.449.2 +0.5
+0.19%
Other Administration









Chief Information Officer Chief Information Officer
55.6 55.6
66.6 66.6
—
142.8 142.8
59.4 59.4
66.9 66.9
—
-766.8 +0.2 .2
+0. +0.34%
Chief Financial Officer Chief Financial Officer
6.0 6.0
6.0 6.0
—
11.1 11.1
6.1 6.1
6.1 6.1
—
+06.1 +0.1 +1.3%.1
+0.1
CRS-23

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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 Acts
request
passed
draft
Enacted
passed
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 0.9
—0.9
+0. +0.0007
+0. +0.08%
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 20.5
—22.8
-1. -1.34
- -3.75.9%
Office of Safety, Security, Office of Safety, Security, and Protection Protection
— —
— —
—
25.0 25.0
23.2 23.2
25.0 25.0
—23.2
+23.2 +23.2
+25.0—
Buildings and facilities Buildings and facilities
60.0 60.0
128.2 128.2
—
152.8 152.8
88.2 88.2
131.7 131.7
—
-40.0
+3.5108.1 -20.1 -15.7%
Hazardous materials management Hazardous materials management
3.5 3.5
4.5 4.5
—
3.5 3.5
7.5 7.5
4.5 4.5
—6.5
+ +32.0 .0
+ +0.044.7%
Office of Inspector General Office of Inspector General
98.2 98.2
98.2 98.2
—
100.4 100.4
100.8 100.8
99.8 99.8
—
+2.6
+1.699.9 +1.7 +1.7%
General Counsel General Counsel
45.1 45.1
45.1 45.1
0.8
45.9 45.9
33.6 33.6
45.9 45.9
—
-11.6
+0.845.4 +0.2 +0.5%
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 4.2
4.2 4.2
—
+0.1
+0.1+0.05 +1.2%
Subtotal
297.7
377.9
0.8
509.8
346.8
405.6
—
-31.1
+27.7
Total, Departmental Administration384.0 +6.1 +1.6% Total
390.4
472.8
0.8
614.7
437.8
500.7
—
-35.0
+27.9480.2 +7.4 +1.6%
Source: CRS, using appropriations text and reports and unpublished CBO tables. House-passed refers to H.R. 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 . Congressional Research Service 20 link to page 26 link to page 26 Agriculture and Related Agencies: FY2021 Appropriations 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” as part of the Office of the Secretary rather than the
previously Senate-confirmed undersecretary position in the mission area. The 2018 farm bil reinstated the undersecretary position, and the FY2020 appropriation
funded it as such.
b. Formerly, this was the Office of Advocacy and Outreach.
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link to page 30 link to page 30
Appendix B. Appropriations in General Provisions
Table B-1. General Provisions: Changes in Mandatory Program Spending (CHIMPS)
Budget authority in mil ions of dol ars Budget authority in mil ions of dol ars
FY2019
FY2020
FY2021
Change from FY2020 to FY2021 enacted Change: FY2020 to...

P.L. 116-
COVID P.L. 116-
Admin.
House-
Senate
House-
Senate
P.L. 116- CHIMPS and mandatory rescissions
P.L. 116-6 94
19 Acts6 94
request
passed
draft
Enacted
passed
draft260 $ %
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
-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 +9.0
—+12.0
+3.0 +3.0
+ +0.033.3%
Subtotal, farm bill programs
+5.0
-51.2
—
-60.2
-48.2
-51.2
—-48.2
+3.0
+0.0-5.9%
Other CHIMPS









Farm Production & Conservation (FPAC) Farm Production & Conservation (FPAC)
Business Business Center Center
[+60.2 [+60.2]a
+60.2 +60.2
—+60.2
+60.2 +60.2
+60.2 +60.2
+60.2 +60.2
—+0.0
+0.0 +0.0
+0.0% Agriculture Quarantine Inspection — — — — — +635.0 +635.0 —
Food for Progress Food for Progress
+10.0 +10.0
— —
— —
— —
— —
— —
— —
— —
—
Total CHIMPS
+15.0
+9.0
—
+0.0
+12.0
+9.0
—+647.0
+3638.0
+0.07089%
Source: CRS, using appropriations text and reports and unpublished CBO tables. House-passed refers to H.R. 7608, Division B. Senate draft refers to the 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 Senate Appropriations Committee draft from November 10, 2020. 10, 2020.
a. Amounts in brackets were not in the official CBO scoring of CHIMPS. The FY2019 appropriations act a. Amounts in brackets were not in the official CBO scoring of CHIMPS. The FY2019 appropriations act transferred mandatory conservation funding into the Farm transferred mandatory conservation funding into the Farm
Production and Conservation Business Center, but the official CBO scoring of appropriations at that timeProduction and Conservation Business Center, but the official CBO scoring of appropriations at that time did not recorddid not record it as a CHIMP the way that the FY2020 it as a CHIMP the way that the FY2020
scoring reflects. For more background, seescoring reflects. For more background, see CRS Report R46011, CRS Report R46011, FY2020 Appropriations for Agricultural Conservation. .
CRS-25

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Table B-2. General Provisions: Rescissions from Discretionary Accounts
Budget authority in mil ions of dol ars Budget authority in mil ions of dol ars
FY2019
FY2020
FY2021
Change from FY2020 to FY2021 enacted Rescissions from discretionary Change: FY2020 to...

P.L. 116-
COVIDP.L. 116-
Admin.
House-
Senate
House-
Senate
Rescissions from discretionary accounts
P.L. 116-6
94
19 ActsP.L. 116- accounts 6 94
request
passed
draft
Enacted
passed
draft260 $ %
Special Supplemental Nutrition Program for Special Supplemental Nutrition Program for
Women, Infants, and Children Women, 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 -800.0
—
+0.0
+200.0-1,250.0 -250.0 +25.0%
Broadband program Broadband program
— —
— —
— —
— —
—-9.0
- -912.0 .0
—-12.0
— —
-9.0
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
—
+15.1
+206.1-1,262.0 -246.9 +24.3%
Source: CRS, using appropriations text and reports and unpublished CBO tables. House-passed refers to H.R. 7608, Division B. Senate draft refers to the 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.


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link to page 34 Senate Appropriations Committee draft from November 10, 2020 . Congressional Research Service 21 link to page 28 link to page 28 Agriculture and Related Agencies: FY2021 Appropriations
Table B-3. General Provisions: Other Appropriations
Budget authority in mil ions of dol ars Budget authority in mil ions of dol ars
FY2019
FY2020
FY2021
Change from FY2020 to FY2021 enacted Change: FY2020 to...

P.L. 116-
COVID P.L. 116-
Admin.
House-
Senate
House-
Senate
Program
P.L. 116-P.L. 116- Program 6 94 6
94
19 Acts
request
passed
draft
Enacted
passed
draft260 $ %
FDA seafood safety FDA seafood safety
— —
— —
— —
— —
—1.0
1.0 1.0
—+1.0
— —
+1.0
FDA buildings and facilities FDA buildings and facilities
— —
20.0 20.0
— —
— —
— —
— —
—
-20.0 -20.0
- -20.0100.0%
Goodfel ow facility Goodfel ow facility
— —
— —
— —
— —
—
58.4
—
—
+58.4
Coronavirus Food Assistance Program
—
—
12,500.0a
—
—
—
—
—58.4 45.9 +45.9
— —
Agriculture Risk Coverage pilot Agriculture Risk Coverage pilot
5.0 5.0
— —
— —
— —
— —
— —
— —
— —
—
Dairy Innovation Dairy Innovation
— —
20.0 20.0
— —
—
6.0 6.0
20.0 20.0
—
-1422.0 +2.0 .0
+ +0.010.0%
Mitigation banking Mitigation banking
— —
5.0 5.0
— —
— —
—
5.0 5.0
—
-55.0 +0.0 .0
+0.0 +0.0%
Conservation Reserve Program pilot Conservation Reserve Program pilot
1.0 1.0
1.0 1.0
— —
— —
— —
— —
—
-1.0 -1.0
- -1.0100.0%
Citrus greening Citrus greening
8.5 8.5
8.5 8.5
— —
—8.5
8.5 8.5
8.5 8.5
—+0.0 +0.0% Cogongrass pilot — — — — — 3.0 +3.0 —
+0.0
+0.0
Protecting Animals with Shelter Grants Protecting Animals with Shelter Grants
— —
2.0 2.0
— —
—
3.0 3.0
2.0 2.0
—
+1.0
+0.02.5 +0.5 +25.0%
Biocontrol Facility Feasibility Study Biocontrol Facility Feasibility Study
— —
— —
— —
— —
—
1.0 1.0
— —
— —
+1.0—
Fruit fly quarantine payments Fruit fly quarantine payments
9.0 9.0
— —
— —
— —
— —
— —
— —
— —
—
Geographical y disadvantaged farmers Geographical y disadvantaged farmers
2.0 2.0
2.0 2.0
— —
—2.0
2.0 2.0
2.0 2.0
—
+0.0 +0.0
+0.0 +0.0%
Farming Opportunities Training Farming Opportunities Training and& Outreach Outreach
— —
5.0 5.0
— —
—5.0
5.0 5.0
5.0 5.0
—
+0.0 +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
+0.0 +0.0%
Rural Energy Savings Program Rural Energy Savings Program
10.0 10.0
12.0 12.0
— —
—
12.0 12.0
10.0 10.0
—
+0.0
-2.011.0 -1.0 -8.3%
Agriculture Business Innovation Center Agriculture Business Innovation Center
— —
— —
— —
—
2.0 2.0
— —
—2.0
+2.0 +2.0
— —
Renewable Energy Renewable Energy
— —
— —
— —
—
10.0 10.0
— —
—10.0
+10.0 +10.0
— —
Maturing mortgage pilot Maturing mortgage pilot
1.0 1.0
1.0 1.0
— —
— —
—2.0
2.0 2.0
—
-+1.0 1.0
+ +1.0100.0%
Rural microentrepreneur assistance program Rural microentrepreneur assistance program
3.0 3.0
— —
— —
— —
— —
— —
— —
— —
—
Water and Waste Water Water and Waste Water
75.0 75.0
— —
— —
— —
— —
— —
— —
— —
—
CRS-27

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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
—
5.0
—
—
—
5.0
—
-5.0
+0.0Waste water pilot — 5.0 — — 5.0 5.0 +0.0 +0.0%
Broadband pilo Broadband pilotbta
125.0 125.0
300 300.0
100.0 .0
—ba
915.0 915.0
325.0 325.0
—
+615.0
+25.0531.0 +231.0 +77.0%
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
— —
—2.0
+1.0 +1.0
-1.0+100.0%
Tribal Demonstration Projects Tribal Demonstration Projects
— —
3.0 3.0
— —
—3.0
3.0 3.0
3.0 3.0
—
+0.0 +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
—5.0
+0.0 +0.0
+0.0 +0.0%
Healthy Fluid Milk Healthy Fluid Milk
— —
1.0 1.0
— —
—1.0
1.0 1.0
1.0 1.0
—
+0.0 +0.0
+0.0 +0.0%
RISE grants RISE grants
— —
5.0 5.0
— —
— —
—5.0
5.0 5.0
—
-5+0.0 .0
+0.0 +0.0%
NIFA military veterans grants NIFA military veterans grants
5.0 5.0
5.0 5.0
— —
—5.0
5.0 5.0
5.0 5.0
—
+0.0 +0.0
+0.0 +0.0%
Genome to Phenome Genome to Phenome
— —
1.0 1.0
— —
—1.0
1.0 1.0
1.0 1.0
—
+0.0
+0.0
NIFA 1890 land grants, Centers of Excel ence
5.0
6.0
—
—
14.0
—
—
+8.0
-6.0
Tribal Student Scholarships
—
5.0
—
—
5.0
5.0
—
+0.0
+0.0
International Agriculture Education Fel owship
—
1.0
—
—
1.0
1.0
—
+0.0
+0.0
NOAA 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
Food Loss Liaison
—
0.4
—
—
0.5
—
—
+0.1
-0.4
Food for Peace
216.0
—
—
—
—
—
—
—
—
Food for Progress
6.0
—
—
—
—
—
—
—
—
Child Nutrition training pilot
—
—
—
—
—
1.0
—
—
+1.0
Nutrition Assistance Program Study
—
6.0
—
—
—
—
—
-6.0
-6.0
Micro-grants for Food Security
—
5.0
—
—
10.0
5.0
—
+5.0
+0.0
School breakfast expansion
—
5.0
—
—
15.0
—
—
+10.0
-5.0
CRS-28

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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
1,036.4
483.9
—
+596.1
+43.6
Disaster/Emergency programs









Ebola prevention and treatment
—
+535.0
—
—
—
—
—
-535.0
-535.0
Rescission of unobligated emergency funding
—
-1,500.0
—
—
—
—
—
+1,500.0
+1,500.0
WHIP (Wildfire, Hurricanes Indemnity Program)
—
+1,500.0
—
—
—
—
—
-1,500.0
-1,500.0
Subtotal, disaster/emergency programs
—
+535.0c
—
—
—
—
—
-535.0
-535.0+0.0 +0.0% Blue Ribbon panel — — — — — 0.3 +0.3 — Farm of the Future — — — — — 4.0 +4.0 — Congressional Research Service 22 link to page 29 Agriculture and Related Agencies: FY2021 Appropriations FY2019 FY2020 FY2021 Change from FY2020 to FY2021 enacted P.L. 116- P.L. 116- Admin. House- Senate P.L. 116- Program 6 94 request passed draft 260 $ % Open data standards — — — — — 0.5 +0.5 — NIFA 1890 land grants, Center of Excel ence 5.0 6.0 — 14.0 — 10.0 +4.0 +66.7% Tribal Student Scholarships — 5.0 — 5.0 5.0 5.0 +0.0 +0.0% International Ag Education Fel owship — 1.0 — 1.0 1.0 1.0 +0.0 +0.0% NOAA working group — — — — 1.0 1.0 +1.0 — Pol inator Research Coordinator — 0.4 — 0.4 — 0.4 +0.0 +0.0% Urban Agriculture Office — 5.0 — 10.0 2.0 7.0 +2.0 +40.0% Food Loss Liaison — 0.4 — 0.5 — 0.5 +0.1 +25.0% Food for Peace 216.0 — — — — — — — Food for Progress 6.0 — — — — — — — Child Nutrition training pilot — — — — 1.0 1.0 +1.0 — Nutrition Assistance Program Study — 6.0 — — — — -6.0 -100.0% Micro-grants for Food Security — 5.0 — 10.0 5.0 5.0 +0.0 +0.0% School breakfast expansion — 5.0 — 15.0 — 6.0 +1.0 +20.0% Subtotal 493.5 440.3 0.0 1,036.4 483.9 723.6 +283.3 +64.3% Disaster/Emergency programs Ebola prevention and treatment — +535.0 — — — — -535.0 -100.0% Rescind unobligated emergency funding — -1,500.0 — — — — +1,500.0 -100.0% WHIP-Wildfire, Hurricanes Indemnity Prog. — +1,500.0 — — — — -1,500.0 -100.0% Subtotal (see Table B-4) — +535.0 — — — — -535.0 -100.0%
Total
493.5
975.3c
12,600.0.3
0.0
1,036.4
483.9
—
+61.1
-491.4723.6 -251.7 -25.8%
Source: CRS, using appropriations text and reports and unpublished CBO tables. House-passed refers to H.R. 7608, Division B. Senate draft refers to the 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, 2020Senate Appropriations Committee draft from November 10, 2020 . .
Note: Excludes supplemental appropriations outside the annual appropriations act. Excludes supplemental appropriations outside the annual appropriations act.
a. a. Includes $9.5 bil ion specified in the CARES Act for payments to farmers and $3 bil ion from indefinite authority in the Families First Coronavirus Relief Act that
USDA used for the Farmers to Families Food Boxes Program.
b. The ReConnect Broadband Pilot Program that was created in the FY2018 appropriation has been funded by The ReConnect Broadband Pilot Program that was created in the FY2018 appropriation has been funded by separate appropriation in the Generalseparate appropriation in the General Provisions Provisions title. In title. 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 available out sideoutside the appropriations caps. For example, the appropriations caps. For example, in FY2020, in FY2020,
appropriators direct $555 mil ion to ReConnect from $300 mil ion appropriated in Generalappropriators direct $555 mil ion to ReConnect from $300 mil ion appropriated in General Provisions and $255 mil ion from the Cushion of Credit account. For Provisions and $255 mil ion from the Cushion of Credit account. For
FY2021, the Administration requests $250 mil ion in the Rural Utilities Service account rather than through General Provisions. FY2021, the Administration requests $250 mil ion in the Rural Utilities Service account rather than through General Provisions.
c. Appropriations designated as emergency spending in FY2020 and are not counted against the discretionary spending limit include $535 mil ion for Ebola and $1.5
bil ion for WHIP, which was offset with $1.5 bil ion in rescissions (see Table B-4).


CRS-29Congressional Research Service 23

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link to page link to page 3529 link to page link to page 3529 link to page link to page 35 link to page 35 link to page 32 27 Agriculture and Related Agencies: FY2021 Appropriations
Table B-4. General Provisions: Scorekeeping Adjustments
Budget authority in mil ions of dol ars Budget authority in mil ions of dol ars
FY2019
FY2020
FY2021
Change: FY2020 to...

Change from FY2020 to FY2021 enacted P.L. 116- P.L. 116 P.L. 116-
COVID-
Admin.
House-
Senate
House-
Senate
Scorekeeping adjustmenta
P.L. 116-6
94
19 ActsP.L. 116- Scorekeeping adjustmenta 6 94
request
passed
draft
Enacted
passed
draft260 $ %
Loan program negative subsidiesb









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
-130.0 -130.0
—
-5.0 -5.0
-5.0+4.0%
Rural community facilities negative subsidy Rural community facilities negative subsidy
-72.0 -72.0
-72.0 -72.0
—-88.0
-88.0 -88.0
-88.0 -88.0
-88.0 -88.0
—
-16.0 -16.0
-16.0+22.2%
Rural elec. & tele. loan negative subsidy Rural elec. & tele. loan negative subsidy
-173.0 -173.0
-176.0 -176.0
—
-175.0 -175.0
-175.0 -175.0
-175.0 -175.0
—-175.0
+1.0 +1.0
+1.0-0.6%
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 -2.0
—-2.0
+1.0 +1.0
+1.0-33.3%
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 -27.0
—-27.0
-4.0 -4.0
-4.0+17.4%
Subtotal, negative subsidies
-405.0
-399.0
—-422.0
-422.0
-422.0
-422.0
—
-23.0
-23.0+5.8%
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
1.0 1.0
—1.0
+0.0 +0.0
+0.0 +0.0%
Emergency designations Emergency designations not counted in al ocation(see Table B-3)
— —
-535. -535.0c0 —
—d
— —
— —
—
—
+535.0
+535.0-635.0 -100.0 +18.7%
Total
-404.0
-933.0
—
-424.0
-421.0
-421.0
—
+512.0
+512.0-1,056.0 -123.0 +13.2%
Source: CRS, using unpublished CBO tables of scorekeeping adjustments. House-passed refers to H.R. 7608, Division B. Senate draft refers to the CRS, using unpublished 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 Senate Appropriations Committee on draft from November 10, November 10, 20202 020. .
a. “Scorekeeping adjustments” are not necessarily appropriated items and may not be shown in a. “Scorekeeping adjustments” are not necessarily appropriated items and may not be shown in Appropriations Committee tables. They are part of the official CBO Appropriations Committee tables. They are part of the official CBO
score (accounting) of the bil . 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 b. A negative subsidy for a loan program general y occurs when the interest rate and/or fees charged to the borrowers are moreborrowers are more t han than sufficient to cover the costs of sufficient to cover the costs of
the risk of default (Governmentthe risk of default (Government Accountability Office, “Credit Reform: Current Method to Estimate Credit Subsidy Costs Is More Appropriate for Budget Estimates Accountability Office, “Credit Reform: 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).
c. Appropriations designated as emergency spending in FY2020 include $535 mil ion for Ebola and $1.5 bil ion for the Wildfires and Hurricane Indemnity Program,
which was offset with $1.5 bil ion in rescissions of prior-year emergency appropriations (see Table B-3).
d. Amounts in the coronavirus supplemental appropriations acts were al designated as emergency spending and are not noted further here because the acts faced no
budget constraint.

CRS-30

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link to page 36 link to page 36 link to page 36 link to page 36Than a Fair Value Approach,” GAO-16-41, January 2016, p. 8). Congressional Research Service 24 link to page 30 link to page 30 link to page 30 link to page 30 Agriculture and Related Agencies: FY2021 Appropriations

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.4955 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.5056 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 annual y OMB computes sequestration rates annual 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 cancel ed from accounts been announced and the total amounts of budget authority that have been cancel ed from accounts
in Agriculture appropriations. in Agriculture appropriations.
Table C-1. Summary of Sequestration on Agriculture Accounts
(mil ion dol ars) (mil ion dol ars)
Budget
Authority
Sequestered
Sequestration
Subject to
Budget
Fiscal Year
Rateaea
Sequestrationbnb
Authorityb

yb 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.
Available for FY2018-FY2021, at https://www.whitehouse.gov/omb/legislative/sequestration-report s-orders and Available for FY2018-FY2021, at https://www.whitehouse.gov/omb/legislative/sequestration-report s-orders and
for FY2013-FY2017, at https://obamawhitehouse.archives.gov/omb/legislative_reports/sequestration. for FY2013-FY2017, at https://obamawhitehouse.archives.gov/omb/legislative_reports/sequestration.
a. Sequestration rates listed here are for nonexempt, nondefense accounts as determined by OMB. a. Sequestration rates listed here are for nonexempt, nondefense accounts as determined by OMB.
b. Totals are computed by CRS for accounts and programs that are in the jurisdiction of Agriculture b. Totals are computed by CRS for accounts and programs that are in the jurisdiction of Agriculture
appropriations. appropriations.

4955 CRS Report R43411, CRS Report R43411, The Budget Control Act of 2011: Legislative Changes to the Law and Their Budgetary Effects. .
5056 CRS Report R42972, CRS Report R42972, Sequestration as a Budget Enforcement Process: Frequently Asked Questions. .
Congressional Research Service Congressional Research Service
31 25

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link to page link to page 1211 Agriculture and Related Agencies: FY2021 Appropriations

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 2013, 2015, 2018, and 2019 (P.L. 113-67, P.L. 114-74, P.L. 115- In FY2014-FY2020, BBAs 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 raised the discretionary budget caps that were placed in statute by the BCA and al owed BBAs raised the discretionary budget caps that were placed in statute by the BCA and al owed
Congress to enact larger appropriations than would have been al owed. The enacted Congress to enact larger appropriations than would have been al owed. 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 of 2019 (P.L. 116-37) similarly provides a higher discretionary cap that For FY2021, the BBA 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 Al ocations”).).5157
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 and continues to apply annual y to certain accounts. BBAs and continues to apply annual y 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 2013. FY2023) as an offset in BBA 2013.5258
2. Congress extended it by another year (until FY2024) to maintain retirement 2. Congress extended it by another year (until FY2024) to maintain 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 2015. (until FY2025) as an offset in BBA 2015.5359
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 2018 (P.L. 115-123, §30101(c)). years (until FY2027) as an offset in BBA 2018 (P.L. 115-123, §30101(c)).5460
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 2019 (P.L. 116-37, §402). two years (until FY2029) as an offset in BBA 2019 (P.L. 116-37, §402).5561

5157 CRS Insight IN11148, CRS Insight IN11148, The Bipartisan Budget Act of 2019: Changes to the BCA and Debt Limit. .
5258 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.
5359 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, crop insurance was used as an additional extending sequestration and related to mandatory spending in agriculture, crop insurance was used as an additional
budgetary offset in BBA 2015. T he effect was temporary, however, and the crop insurance reduction was restored. For budgetary offset in BBA 2015. T he effect was temporary, however, and the crop insurance reduction was restored. For
more background, see the section on crop insurance and the Standard Reinsurance Agreement in CRS Report R44240, more background, see the section on crop insurance and the Standard Reinsurance Agreement in CRS Report R44240,
Agriculture and Related Agencies: FY2016 Appropriations. .
5460 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.
5561 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)5662 and the Conservation Reserve Program. and the Conservation Reserve Program.5763 Some prior Some prior
legal obligations in the Federal Crop Insurance legal obligations in the Federal Crop Insurance Corporation58Corporation64 and the farm commodity programs and the farm commodity programs
may be may be exempt59exempt65 as determined by OMB. as determined by OMB.6066
General y speaking, the experience since FY2013 is that OMB General y speaking, the experience since FY2013 is that OMB has ruled that most of crop 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.6167
Implementation of Sequestration
Nonexempt mandatory spending in FY2021 is to be reduced by a 5.7% sequestration rate Nonexempt mandatory spending in FY2021 is to be reduced by a 5.7% sequestration rate (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 bil ion from mandatory agriculture accounts in projected to result in a reduction of about $1.7 bil ion from mandatory agriculture accounts in
FY2021, including over $1.3 bil ion from the CCC that has $23 bil ion of budget authority FY2021, including over $1.3 bil ion from the CCC that has $23 bil ion 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,6268 payments to farmers are computed by a payments to farmers are computed by a
regular formula authorized in the farm bil , and the final actual payment to the farmer is reduced regular formula authorized in the farm bil , 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 available budget authority for the fiscal year. rate is applied to the available budget authority for the fiscal year.

5662 2 U.S.C. §905(h). 2 U.S.C. §905(h).
5763 2 U.S.C. §905(g)(1)(A). 2 U.S.C. §905(g)(1)(A).
5864 2 U.S.C. §905(g)(2). 2 U.S.C. §905(g)(2).
5965 2 U.S.C. §906(j). 2 U.S.C. §906(j).
6066 Some administrative expenses may be subject to sequestration, and therefore programs that are otherwise exempt Some administrative expenses may be subject to sequestration, and therefore programs that are otherwise exempt
may have a relatively small sequestration-eligible amount compared to their total budget authority. T his has been the may have a relatively small sequestration-eligible amount compared to their total budget authority. T his 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.
6167 CRS Report R42050, CRS Report R42050, Budget “Sequestration” and Selected Program Exemptions and Special Rules. .
6268 CRS In Focus IF11161, CRS In Focus 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 6/27/1995 6/14/1995 6/27/1995
7/21/1995 7/21/1995
9/13/1995 9/13/1995
9/14/1995 9/14/1995
9/20/1995 10/21/1995 9/20/1995 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 7/14/1997 6/25/1997 7/14/1997
7/24/1997 7/24/1997
7/15/1997 7/15/1997
7/17/1997 7/17/1997
7/24/1997 11/18/1997 7/24/1997 11/18/1997
E P.L. 105-86 E P.L. 105-86
97-201 97-201
1999 1999
6/10/1998 6/16/1998 6/10/1998 6/16/1998
6/24/1998 6/24/1998
6/9/1998 6/9/1998
6/11/1998 6/11/1998
7/16/1998 10/21/1998 O P.L. 105-277 7/16/1998 10/21/1998 O P.L. 105-277
98-201 98-201
2000 2000
5/13/1999 5/24/1999 5/13/1999 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 10/28/2000 7/20/2000 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 7/26/2002 6/26/2002 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 11/10/2005 9/22/2005 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 7/19/2007 7/12/2007 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 6/18/2009 6/11/2009 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 5/31/2011 5/24/2011 5/31/2011
6/16/2011 6/16/2011
Pol ed out Pol ed out
9/7/2011 9/7/2011
11/1/2011 11/18/2011 O P.L. 112-55 11/1/2011 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 5/29/2014 5/20/2014 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 4/19/2016 4/13/2016 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 7/12/2017 6/28/2017 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 7/24/2020
— —
11/10/202 11/10/2020a
— —
—
—
—12/27/2020 O P.L. 116-260
R46437 R46437
Source: CRS. CRS.
Notes: E = enacted as standalone appropriation (eight times over 25 years); O = omnibus appropriation (15 E = enacted as standalone appropriation (eight times over 25 years); O = omnibus appropriation (15
times); Y = year-long CR (two times). “Pol ed out” refers to a procedure that permits a Senate subcommittee to times); Y = year-long CR (two times). “Pol ed out” refers to a procedure that permits a Senate subcommittee to
transmit a bil to its ful committee without a formal markup session. See CRS Report RS22952, transmit a bil to its ful committee without a formal markup session. See CRS Report RS22952, Proxy Voting and
Pol ing in Senate Committee. .
a. Senate committee action for FY2021 refers to a draft released by the Senate Appropriations Committee. a. Senate committee action for FY2021 refers to a draft released by the Senate Appropriations Committee.
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Author Information

Jim Monke Jim Monke

Specialist in Agricultural Policy Specialist in Agricultural Policy


Key Policy Staff
Area of Expertise
Name
Agricultural appropriations, USDA budget Agricultural appropriations, USDA budget
Jim Monke Jim Monke
Agricultural Marketing Service Agricultural Marketing Service
Joel Greene Joel Greene
Animal and Plant Health Inspection Service Animal and Plant Health Inspection Service
Amber Nair Amber Nair
Renee Johnson Renee Johnson
Commodity Futures Trading Commission Commodity Futures Trading Commission
Rena Mil er Rena Mil er
Conservation Conservation
Megan Stubbs Megan Stubbs
Crop insurance Crop insurance
Stephanie Rosch Stephanie Rosch
Disaster assistance Disaster assistance
Megan Stubbs Megan Stubbs
Farm commodity programs Farm commodity programs
Randy SchnepfStephanie Rosch
Farm loans and credit Farm loans and credit
Jim Monke Jim Monke
Food and Drug Administration Food and Drug Administration
Agata Agata DabrowskaBodie
Food safety, general y Food safety, general y
Amber Nair Amber Nair
Renee Johnson Renee 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 Aussenberg Randy Alison Aussenberg
Kara Clifford Bil ings Kara Clifford Bil ings
Research and extension Research and extension
Genevieve Croft Genevieve Croft
Rural development Rural development
Alyssa Casey Alyssa Casey Lisa Benson
Trade Trade
Anita Regmi Anita Regmi
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Agriculture and Related Agencies: FY2021 Appropriations




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