Agricultural Conservation: FY2022 Appropriations

Agricultural Conservation: FY2022
November 22, 2021April 28, 2022
Appropriations
Megan Stubbs
The Agriculture appropriations bill funds the U.S. Department of Agriculture (USDA) except for The Agriculture appropriations bill funds the U.S. Department of Agriculture (USDA) except for
Specialist in Agricultural Specialist in Agricultural
the Forest Service. the Forest Service. For FY2022, the House Appropriations Committee reported H.R. 4356 on
Conservation and Natural
June 30, 2021, and the Senate Appropriations Committee reported S. 2599 on August 4, 2021.
Resources Policy
The House passed a seven-bill omnibus appropriation (H.R. 4502) on July 29, 2021, with

Agriculture appropriations as Division B. The FY2022 House-passed and Senate-reported bills
include funding for USDA conservation programs and activities. Differences between the two

versions are unresolved, as of this report’s date. In the absence of an enacted full-year
appropriation, Congress passed a continuing resolution (P.L. 117-43, Division A) through December 3, 2021.
Agricultural conservation programs include both mandatory and discretionary spending. Most conservation program funding
is mandatory and is authorized in omnibus farm bills. Other conservation programs—mostly technical assistance—operate
with discretionary funding through annual appropriationsThe FY2022 Consolidated Appropriations Act (P.L. 117-103, Division A) Conservation and Natural includes funding for USDA conservation programs and activities. Resources Policy Agricultural conservation programs include both mandatory and discretionary spending. Most conservation program funding is mandatory and is authorized in omnibus farm bills. Other conservation programs—mostly technical assistance—operate with discretionary funding through annual appropriations. The FY2022 appropriation includes funding levels for discretionary conservation programs that are less than the amounts provided in FY2021 and less than the amounts proposed in the FY2022 House-passed (H.R. 4502, Division B) and Senate-reported (S. 2599) appropriations bills. The FY2022 appropriation also does not include the Biden Administration’s proposed increases to discretionary conservation programs. Differences between the FY2022 enacted appropriation and House and Senate appropriations bills generally center on watershed programs, which received funding in FY2022 through the Infrastructure Investment and Jobs Act (IIJA; P.L. 117-58). .
The largest discretionary conservation program is the Conservation Operations (CO) account, which funds conservation The largest discretionary conservation program is the Conservation Operations (CO) account, which funds conservation
planning and implementation assistance on private agricultural lands across the country. The Natural Resources Conservation planning and implementation assistance on private agricultural lands across the country. The Natural Resources Conservation
Service (NRCS) administers the CO account. CO funds are used to support nearly half of the salaries and expenses for NRCS Service (NRCS) administers the CO account. CO funds are used to support nearly half of the salaries and expenses for NRCS
staff, as well as NRCS technology development, conservation system design, compliance reviews, grants to partners for staff, as well as NRCS technology development, conservation system design, compliance reviews, grants to partners for
additional technical assistance capacity, and resource assessment reports. A decline in funding for CO over the past 10 years additional technical assistance capacity, and resource assessment reports. A decline in funding for CO over the past 10 years
has resulted in reduced NRCS staffing levels. Reductions in staff may affect NRCS’s ability to provide technical assistance has resulted in reduced NRCS staffing levels. Reductions in staff may affect NRCS’s ability to provide technical assistance
and administer farm bill conservation programs to farmers and ranchers. and administer farm bill conservation programs to farmers and ranchers.
The FY2022 The FY2022 House-passed and Senate-reported bills would increase funding for CO. The House bill would increaseappropriation increases funding for CO by $71.7 million from FY2021 levels. This increase was more than the House bill, which would have increased funding funding
by $62.0 million above FY2021 levelsby $62.0 million above FY2021 levels to $894.7 million. The Senate-reported bill would increase, but less than the Senate-reported bill, which would have increased funding for CO by $105.2 funding for CO by $105.2
million above FY2021 levelsmillion above FY2021 levels to $938.0 million. While the total amount for CO funding . While the total amount for CO funding would increase under both FY2022
billsis an overall increase, a larger portion of the funding , a larger portion of the funding would beis directed to specific conservation programs and activities directed to specific conservation programs and activities rather than for other uses, than for other uses,
such as staff positions. The Administration’s FY2022 request such as staff positions. The Administration’s FY2022 request iswas for an increase in CO funding of $53.5 million from the for an increase in CO funding of $53.5 million from the
FY2021 appropriation without a proposed increase in staff. FY2021 appropriation without a proposed increase in staff. The request proposes thatRather, it proposed the increase in funds be used primarily the increase in funds be used primarily
for climate change-related initiatives. for climate change-related initiatives.
Other discretionary spending for agricultural conservation is primarily for watershed programs. The Other discretionary spending for agricultural conservation is primarily for watershed programs. The House-passed and
Senate-reported bills include $10.0 million for the Watershed Rehabilitation Program––the same amount enactedlargest program—Watershed and Flood Prevention Operations (WFPO)—is funded at $100 million in the FY2022 appropriation, which is $75 million less than the funding level provided in FY2021. in FY2021.
The largest program—Watershed and Flood Prevention Operations (WFPO)—received $175.0 million in FY2021. For
FY2022, the House-passed bill would decrease WFPO funding to $160.0 million. The Senate-reported bill would increase
funding in FY2022 to $198.0 million, with the additional $23.2 million in funding designated for congressionally directed
spending (earmarks)The Watershed Rehabilitation Program receives $1 million in the FY2022 appropriation, $9 million less than appropriated in FY2021. Both WFPO and the Watershed Rehabilitation Program received funding in FY2022 through the IIJA—$500 million and $118 million, respectively—which according to the FY2022 joint explanatory statement, accounts for the reduction in the annual appropriation. For FY2022, the House and Senate resumed allowing earmarks in appropriations. The House-passed . For FY2022, the House and Senate resumed allowing earmarks in appropriations. The House-passed
bill for FY2022 does not include earmarks to conservation accounts. The Senate-reported bill contains 24 earmarks totaling bill for FY2022 does not include earmarks to conservation accounts. The Senate-reported bill contains 24 earmarks totaling
$42.9 million in two accounts—CO and WFPO. $42.9 million in two accounts—CO and WFPO.
Conservation programs funded with mandatory spending do not require annual appropriations, but Congress can reduce Conservation programs funded with mandatory spending do not require annual appropriations, but Congress can reduce
mandatory spending programs in appropriations through Changes in Mandatory Program Spending (CHIMPS). Congress mandatory spending programs in appropriations through Changes in Mandatory Program Spending (CHIMPS). Congress
enacted CHIMPS on agricultural conservation programs every year between FY2003 and FY2018. Since FY2019, Congress enacted CHIMPS on agricultural conservation programs every year between FY2003 and FY2018. Since FY2019, Congress
has transferred $60.2 million each year from mandatory conservation programs to fund administrative activities. The FY2022 has transferred $60.2 million each year from mandatory conservation programs to fund administrative activities. The FY2022
House-passed and Senate-reported bills both includeappropriation includes a similar transfer for FY2022. a similar transfer for FY2022.
Agriculture appropriations bills Agriculture appropriations bills also may include policy-related provisions that direct how the executive branch is to carry may include policy-related provisions that direct how the executive branch is to carry
out the appropriations. The FY2022 out the appropriations. The FY2022 appropriation, as well as the FY2022 House-passed and Senate-reported billsHouse-passed and Senate-reported bills both, include policy provisions for conservation include policy provisions for conservation
programs, programs, ranging fromsuch as waiving specific programmatic requirements waiving specific programmatic requirements toand requiring reports to Congress. requiring reports to Congress.
Congressional Research Service Congressional Research Service

---

link to page 4 link to page link to page 4 link to page 45 link to page link to page 45 link to page 7 link to page 10 link to page 11 link to page 12 link to page 13 link to page 14 link to page 5 link to page 8 link to page 9 link to page 10 link to page 10 link to page 13 link to page 6 link to page 12 link to page 15 link to page 15 link to page 17 link to page 17 link to page link to page 7 link to page 10 link to page 11 link to page 12 link to page 13 link to page 14 link to page 5 link to page 8 link to page 9 link to page 10 link to page 10 link to page 13 link to page 6 link to page 12 link to page 15 link to page 15 link to page 17 link to page 17 link to page 1918 link to page link to page 1918 link to page link to page 2120 Agricultural Conservation: FY2022 Appropriations

Contents
Conservation Appropriations ........................................................................................................... 1
Discretionary Conservation Programs ............................................................................................. 12
Conservation Operations ........................................................................................................... 12
Funding for Technical Assistance.............................................................................................. 4
NRCS Staffing Levels ............................................................................................................... 7
Watershed Programs .................................................................................................................. 8
Congressionally Directed Spending (Earmarks) ....................................................................... 9
Mandatory Conservation Programs ............................................................................................... 10
Policy-Related Provisions .............................................................................................................. 11

Figures
Figure 1. Conservation Operations Appropriations, by Function, FY2012-FY2022 ...................... 2
Figure 2. Conservation Operations (CO) Appropriated Funding, FY1999-FY2022 ....................... 5
Figure 3. FY2021 Estimated NRCS Technical Assistance, by Program ......................................... 6
Figure 4. Total Natural Resources Conservation Service (NRCS) Staffing, FY1999-
FY2022 ......................................................................................................................................... 7
Figure 5. Projected Mandatory Conservation Program Funding, FY2021 and FY2022 ............... 10

Tables
Table 1. FY2020-FY2022 Discretionary Agricultural Conservation Funding ................................ 3
Table 2. FY2022 Earmark Totals in S. 2599, by State and Conservation Program .......................................... 9
Table 3. Selected Conservation Policy Provisions in the FY2021 and FY2022
Appropriations Acts .................................................................................................................... 12
Table 4. Selected Conservation Policy Provisions Directing Funding Amounts in FY2021
and FY2022 Appropriations Explanatory Statements ................................................................ 14
Table 5. Summary of Selected Conservation Policy Provisions in FY2021 and FY2022
Appropriations FY2022 Appropriations Explanatory Statements .............................................................................................................. 15 16

Contacts
Author Information ........................................................................................................................ 1817

Congressional Research Service Congressional Research Service

---

Agricultural Conservation: FY2022 Appropriations

he Agriculture appropriations bill—formally called the Agriculture, Rural Development, he Agriculture appropriations bill—formally called the Agriculture, Rural Development,
Food and Drug Administration, and Related Agencies Appropriations Act—funds all of the Food and Drug Administration, and Related Agencies Appropriations Act—funds all of the
T U.S. Department of Agriculture (USDA), excluding the U.S. Forest Service. For FY2022, T U.S. Department of Agriculture (USDA), excluding the U.S. Forest Service. For FY2022,
the House Appropriations Committee reported H.R. 4356 on June 30, 2021 (including H.Rept. the House Appropriations Committee reported H.R. 4356 on June 30, 2021 (including H.Rept.
117-82), and the Senate Appropriations Committee reported S. 2599 on August 4, 2021 (including 117-82), and the Senate Appropriations Committee reported S. 2599 on August 4, 2021 (including
S.Rept. 117-34). The House passed a seven-bill omnibus appropriation (H.R. 4502) on July 29, S.Rept. 117-34). The House passed a seven-bill omnibus appropriation (H.R. 4502) on July 29,
2021, with Agriculture appropriations as Division B. The measure was not completed before the 2021, with Agriculture appropriations as Division B. The measure was not completed before the
end of FY2021. On September 30, 2021, Congress passed a continuing resolution (P.L. 117-43, end of FY2021. On September 30, 2021, Congress passed a continuing resolution (P.L. 117-43,
Division A), which Division A), which providesprovided funding for USDA through December 3, 2021. funding for USDA through December 3, 2021.
Three additional continuing resolutions were enacted before March 15, 2022, when Congress passed, and the President signed into law, the FY2022 Consolidated Appropriations Act (P.L. 117-103). Agriculture and related agencies are included under Division A. This report provides a brief overview of the conservation-related provisions in the FY2022 This report provides a brief overview of the conservation-related provisions in the FY2022
Agriculture appropriations bills. For a general analysis of FY2022 appropriations for agriculture, Agriculture appropriations bills. For a general analysis of FY2022 appropriations for agriculture,
see CRS Report R46951, see CRS Report R46951, Agriculture and Related Agencies: FY2022 Appropriations. .
Conservation Appropriations
USDA administers numerous agricultural conservation programs that assist private landowners USDA administers numerous agricultural conservation programs that assist private landowners
with making land improvements and addressing natural resource concerns. These include with making land improvements and addressing natural resource concerns. These include
working lands programs, land retirement and easement programs, watershed programs, technical working lands programs, land retirement and easement programs, watershed programs, technical
assistance, and other programs. The two lead agricultural conservation agencies within USDA are assistance, and other programs. The two lead agricultural conservation agencies within USDA are
the Natural Resources Conservation Service (NRCS), which provides technical assistance and the Natural Resources Conservation Service (NRCS), which provides technical assistance and
administers most conservation programs, and the Farm Service Agency (FSA), which administers administers most conservation programs, and the Farm Service Agency (FSA), which administers
the Conservation Reserve Program.1 the Conservation Reserve Program.1
Most conservation program funding is mandatory, obtained through the Commodity Credit Most conservation program funding is mandatory, obtained through the Commodity Credit
Corporation (CCC), and authorized in omnibus farm bills (about $5.9 billion of CCC budget Corporation (CCC), and authorized in omnibus farm bills (about $5.9 billion of CCC budget
authority in FY2022).2 The Agriculture Improvement Act of 2018 (2018 farm bill; P.L. 115-334) authority in FY2022).2 The Agriculture Improvement Act of 2018 (2018 farm bill; P.L. 115-334)
reauthorized most mandatory conservation programs through FY2023. Other conservation reauthorized most mandatory conservation programs through FY2023. Other conservation
programs—most of which provide technical assistance—operate with discretionary funding programs—most of which provide technical assistance—operate with discretionary funding
provided in annual appropriations (about $1 billion annually). provided in annual appropriations (about $1 billion annually).
The FY2022 The FY2022 appropriation is less than FY2021 level for discretionary conservation programs, whereas the FY2022 House-passed and Senate-reported appropriations bills generally House-passed and Senate-reported appropriations bills generally would increaseincreased
funding funding abovefrom FY2021 levels for discretionary conservation programs. The Biden FY2021 levels for discretionary conservation programs. The Biden
Administration’s FY2022 request also Administration’s FY2022 request also proposes an increaseproposed increases for discretionary conservation for discretionary conservation
funding funding from the FY2021 enacted levels. Differences between the FY2022 enacted appropriation and House and Senate appropriations bills center on watershed programs, which received funding in FY2022 through the Infrastructure Investment and Jobs Act (IIJA; P.L. 117-58).from the FY2021 enacted levels.
Discretionary Conservation Programs
Conservation Operations
NRCS administers all of USDA’s discretionary conservation programs. The largest program and
the account that funds most NRCS activities is Conservation Operations (CO). The CO account
primarily funds Conservation Technical Assistance (CTA), which provides conservation planning
and implementation assistance from field staff placed in almost all counties within the United

1 For more information on individual conservation programs, see CRS Report R40763, 1 For more information on individual conservation programs, see CRS Report R40763, Agricultural Conservation: A
Guide to Programs. .
2 The Commodity Credit Corporation (CCC) is a mandatory funding mechanism for agriculture programs administered 2 The Commodity Credit Corporation (CCC) is a mandatory funding mechanism for agriculture programs administered
by the U.S. Department of Agriculture (USDA). For more information on the CCC, see CRS Report R44606, by the U.S. Department of Agriculture (USDA). For more information on the CCC, see CRS Report R44606, The
Commodity Credit Corporation (CCC). .
Congressional Research Service Congressional Research Service

1 1

---

link to page 5 link to page 7 link to page 6 link to page 17 link to page 5 link to page 7 link to page 6 link to page 17 link to page 19
Agricultural Conservation: FY2022 Appropriations

Agricultural Conservation: FY2022 Appropriations Discretionary Conservation Programs Conservation Operations NRCS administers all of USDA’s discretionary conservation programs. The largest program and the account that funds most NRCS activities is Conservation Operations (CO). The CO account primarily funds Conservation Technical Assistance (CTA), which provides conservation planning and implementation assistance from field staff placed in almost all counties within the United States and its territories. Other components of CO include the Soil Survey, Snow Survey and States and its territories. Other components of CO include the Soil Survey, Snow Survey and
Water Supply Forecasting, and Plant Materials Centers Water Supply Forecasting, and Plant Materials Centers (Figure 1).
Figure 1. Conservation Operations Appropriations, by Function, FY2012-FY2022

Source: Figure created by Congressional Research Service (CRS) based on appropriations acts. Figure created by Congressional Research Service (CRS) based on appropriations acts.
Notes: CTA = Conservation Technical Assistance; PMC = Plant Materials Centers; and Other = Grazing Lands CTA = Conservation Technical Assistance; PMC = Plant Materials Centers; and Other = Grazing Lands
Conservation Initiatives, watershed projects, rescissions, and other congressionally directed fundsConservation Initiatives, watershed projects, rescissions, and other congressionally directed funds. House refers
to H.R. 4502 (as passed by the House), Division B, and Senate refers to S. 2599 (as reported by the Senate
Appropriations Committee). (earmarks). Depending on the legislative text, some programs included in Depending on the legislative text, some programs included in Other during one year during one year
may be accounted for in CTA in another year. may be accounted for in CTA in another year.
The CO account is the primary source of discretionary funding for technical assistance (see The CO account is the primary source of discretionary funding for technical assistance (see
“Funding for Technical Assistance” section for additional detail). The Biden Administration’s section for additional detail). The Biden Administration’s
FY2022 budget requests $886.3 million for CO, $53.6 million (+6.4%) more than enacted for FY2022 budget requests $886.3 million for CO, $53.6 million (+6.4%) more than enacted for
FY2021. The FY2021. The House-passed bill adopts much, but not all, of the Administration’s request,
proposing $8.5 million more than the Administration’s request and $62.0 million (+7.4%) more
than the FY2021 enacted. The Senate-reported bill also exceeds the Administration’s request,
proposing $43.2 million more than the House-passed bill and $105.2 million (12.6%) more than
the FY2021 enacted amount.
Both the House-passed and Senate-reported bills direct a portion of CO funding to specific
conservation programs and initiatives (Table 1). Language in FY2022 appropriation increases CO funding by $71.7 million from FY2021 levels and directs funding to a number of conservation initiatives (Table 1). Language in the FY2022 joint explanatory statement, H.Rept. 117-82 (accompanying H.Rept. 117-82 (accompanying
H.R. 4356) and S.Rept. 117-34 (accompanying S. 2599) further directs funding to selected H.R. 4356) and S.Rept. 117-34 (accompanying S. 2599) further directs funding to selected
activities and earmarks activities and earmarks (Table 4 and Table 5).and Congressional Research Service 2 link to page 18 link to page 6 link to page 7 link to page 7 link to page 12 Agricultural Conservation: FY2022 Appropriations Table 5).3 In some cases, funding from CO would be directed In some cases, funding from CO would be directed
to programs or initiatives that in prior years have been funded outside of the CO account. For to programs or initiatives that in prior years have been funded outside of the CO account. For
example, the FY2020 and FY2021 enacted appropriations included funding for the example, the FY2020 and FY2021 enacted appropriations included funding for the Office of
Congressional Research Service

2

---

link to page 6 link to page 7 link to page 7 link to page 12 link to page 12 Agricultural Conservation: FY2022 Appropriations

Urban Agriculture and Innovative ProductionUrban Agriculture and Innovative Production program in the General Provisions title ($5.0 million and in the General Provisions title ($5.0 million and
$7.0 million, respectively). The FY2022 $7.0 million, respectively). The FY2022 Administration’s requestappropriation includes funding for the Office includes funding for the Office
of Urban Agriculture and Innovative Production of Urban Agriculture and Innovative Production as a standalone appropriation ($9.5 million)
under NRCS. The House-passed and Senate-reported bills, however, would fund this program
fromunder the CO account ($ the CO account ($9.5 million and $8.0 million, respectively8.5 million). Therefore, while the total ). Therefore, while the total
amount for CO funding amount for CO funding would increase under the House-passed and Senate-reported billsincreases under the FY2022 appropriation from the FY2021 level, much , much
of the increase would go to these directed of the increase would go to these directed activitiesactivities (Table 1).
Table 1. FY2020-FY2022 Discretionary Agricultural Conservation Funding
(budget authority in thousands of dollars) (budget authority in thousands of dollars)

FY2020
FY2021
FY2022
Enacted P.L. 116-
P.L. 116-
Admin.
House-
Senate-
Enacted
P.L. 117- Program
94
260
Request
passed
reported
103 Conservation Operations (CO)
Conservation Technical Conservation Technical
Assistance Assistance
735,760 735,760
734,255 734,255
773,813 773,813
759,813 759,813
784,813 784,813
759,813
Watershed Projectsa
5,600
3,000
0 0
0 0
0 0

Climate Change-Related
Initiatives
0 0
0 0
29,000
15,000
20,000
3,000
Soil Health Initiative
0 0
0 0
0 0
2,000
3,000
1,000
Grazing Lands Conservation
Initiative
0 0
0 0
0 0
0 0
20,000
14,000
Soil Survey Soil Survey
74,987 74,987
79,444 79,444
84,444 84,444
84,444 84,444
84,500 84,500
84,444 Maintenance 0 0 0 0 0 5,000
Snow Survey Snow Survey
9,400 9,400
9,488 9,488
16,488 16,488
14,488 14,488
16,500 16,500
9,488
Plant Material Centers Plant Material Centers
9,481 9,481
9,540 9,540
11,540 11,540
11,540 11,540
9,540 9,540
10,540 Climate Change-Related Initiatives 0 0 0 0 0 1,000
Urban Agriculture and Urban Agriculture and
Innovative ProductioInnovative Productionb
0 0
0 0
0 0
9,458 9,458
8,000 8,000
8,500
Heathy Forest Reserve Heathy Forest Reserve
Program Program
0 0
0 0
0 0
10,000 10,000
0 0
7,000
Feral Hog Fencing Feral Hog Fencing
0 0
0 0
0 0
5,000 5,000
0 0
5,000
NFWF Working Land NFWF Working Land
Resilience Program Resilience Program
0 0
0 0
0 0
0 0
15,000 15,000
0
CO Earmarks (see CO Earmarks (see Table 2)
NA NA
NA NA
NA NA
NA NA
19,611 19,611
19,611
Total Conservation Total Conservation
Operations Operations
829,628 829,628
832,727 832,727
886,285 886,285
894,743 894,743
937,964 937,964
904,396
Watershed Operations
175,000 175,000
175,000 175,000
175,000 175,000
160,000 160,000
198,275 198,275

Watershed Earmarks (see
Table 2)
NA
NA
NA
NA
23,275

Watershed Rehabilitation
Program
10,000
10,000
10,000
10,000
10,000

Water Bank
[4,000]
[4,000]
0
0
[4,000]

Heathy Forest Reserve
Program
0
0
20,000
0
0
100,000 3 “Explanatory Statement Submitted by Ms. DeLauro, Chair of the House Committee on Appropriations, Regarding the House Amendment to H.R. 2471, Consolidated Appropriations Act, 2022,” Congressional Record, vol. 168, part 42-Book III (March 9, 2022), pp. H1709-H1771.
Congressional Research Service Congressional Research Service

3 3

---

link to page link to page 712 link to page link to page 117 link to page link to page 811 Agricultural Conservation: FY2022 Appropriations


FY2020
FY2021
FY2022
Enacted P.L. 116-
P.L. 116-
Admin.
House-
Senate-
Enacted
P.L. 117- Program
94
260
Request
passed
reported
103 Watershed Earmarks (see Table 2) NA NA NA NA 23,275 23,275 Watershed Rehabilitation Program 10,000 10,000 10,000 10,000 10,000 1,000 Water Bank [4,000] [4,000] 0 0 [4,000] [4,000] Mitigation Banking [5,000] [5,000] 0 0 [5,000] [5,000] Heathy Forest Reserve Program 0 0 20,000 0 0 0 Urban Agriculture and
Innovative Productionb
[5,000] [5,000]
[7,000] [7,000]
9,458 9,458
0 0
0 0
0
Total NRCS Discretionary
1,014,628
1,017,727
1,100,743
1,064,743
1,146,239
1,005,396
Source: Prepared by CRS using appropriations text and report tables.Prepared by CRS using appropriations text and report tables. House-passed refers to H.R. 4502, refers to H.R. 4502,
Division B, and Division B, and Senate-reported refers to S. 2599. refers to S. 2599.
Notes: Amounts are nominal discretionary budget authority in thousands of dol ars unless labeled otherwise. Amounts are nominal discretionary budget authority in thousands of dol ars unless labeled otherwise.
Italics indicate funding that is shown within other accounts in the table. Bracketed amounts are not included in Italics indicate funding that is shown within other accounts in the table. Bracketed amounts are not included in
totals; they indicate funding appropriated in General Provisions and accounted for separately from the Natural totals; they indicate funding appropriated in General Provisions and accounted for separately from the Natural
Resources Conservation Service (NRCS) appropriations. Excludes amounts in supplemental appropriations acts Resources Conservation Service (NRCS) appropriations. Excludes amounts in supplemental appropriations acts
and proposed rescission language. NFWF = National Fish and Wildlife Foundation; NA = Not applicable. and proposed rescission language. NFWF = National Fish and Wildlife Foundation; NA = Not applicable.
a. In FY2020, separate funding levels were provided for selected watershed projects, with a primary purpose a. In FY2020, separate funding levels were provided for selected watershed projects, with a primary purpose
to provide water to rural communities from within Conservation Technical Assistance (CTA). In the to provide water to rural communities from within Conservation Technical Assistance (CTA). In the
FY2021 enacted appropriation, this language was moved to the Watershed Operations account. Language FY2021 enacted appropriation, this language was moved to the Watershed Operations account. Language
also was included in the FY2021 enacted appropriation directing funding from CTA to watershed projects also was included in the FY2021 enacted appropriation directing funding from CTA to watershed projects
authorized under the Flood Control Act of 1944 (P.L. 78-534). While similar in nature, they are for authorized under the Flood Control Act of 1944 (P.L. 78-534). While similar in nature, they are for
distinctly different watershed projects. For additional discussion, see the distinctly different watershed projects. For additional discussion, see the “Watershed Programs” section. ection.
b. FY2020 and FY2021 enacted included funding for the Urban Agriculture and Innovative Production program b. FY2020 and FY2021 enacted included funding for the Urban Agriculture and Innovative Production program
in the General Provisions title. The FY2022 Administration’s request includes funding as a standalone in the General Provisions title. The FY2022 Administration’s request includes funding as a standalone
appropriation, and the appropriation, and the FY2022 enacted and House and Senate bil s would fund the office from CO. House and Senate bil s would fund the office from CO.
Funding for Technical Assistance
NRCS is the federal provider of technical assistance for agricultural conservation.NRCS is the federal provider of technical assistance for agricultural conservation.34 At the At the
landowner’s request, NRCS provides technical assistance to conserve and improve natural landowner’s request, NRCS provides technical assistance to conserve and improve natural
resources. The assistance includes technical expertise combined with knowledge of local resources. The assistance includes technical expertise combined with knowledge of local
conditions and is provided through a network of federal staff throughout the United States. conditions and is provided through a network of federal staff throughout the United States.
Technical assistance for conservation is funded through both mandatory and discretionary Technical assistance for conservation is funded through both mandatory and discretionary
sources, with CO being the primary account receiving discretionary funding from annual sources, with CO being the primary account receiving discretionary funding from annual
appropriations. The CTA program within CO funds much of the conservation technical assistance appropriations. The CTA program within CO funds much of the conservation technical assistance
provided by NRCS. Funds support salaries and expenses for NRCS staff, technology provided by NRCS. Funds support salaries and expenses for NRCS staff, technology
development, conservation system design, compliance reviews, grants to partners for additional development, conservation system design, compliance reviews, grants to partners for additional
technical assistance capacity, and resource assessment reports. Total funding for CO has technical assistance capacity, and resource assessment reports. Total funding for CO has
fluctuated in recent years. In some cases, fluctuations in funding were the result of an fluctuated in recent years. In some cases, fluctuations in funding were the result of an
Administration’s request. In other cases, funding changes reflected national budget dynamics that Administration’s request. In other cases, funding changes reflected national budget dynamics that
were not unique to CO (e.g., reductions caused by fiscal pressures and sequestration in FY2013
and funding increases through budget agreements in FY2014-FY2021). In inflation-adjusted
dollars, CO has declined over the past 20 years (see Figure 2).
The other side of agricultural conservation assistance is financial assistance. Financial assistance
provides direct payments to landowners to implement certain conservation practices or to
conserve and protect natural resources on private land. Most programs providing financial
assistance are authorized through omnibus farm bills and receive funding from mandatory
sources—thus, they do not require an annual appropriation.

3 4 The statutory authority to provide conservation technical assistance is derived from the Soil Conservation and The statutory authority to provide conservation technical assistance is derived from the Soil Conservation and
Domestic Allotment Act of 1935 (P.L. 74-46; 16 U.S.C. §590 et seq.). Domestic Allotment Act of 1935 (P.L. 74-46; 16 U.S.C. §590 et seq.).
Congressional Research Service Congressional Research Service

4 4

---

link to page link to page 98 link to page 9 link to page 9
Agricultural Conservation: FY2022 Appropriations

In addition to technical assistance provided through CTA and CO, technical assistance is part of
farm bill conservation programs, which are funded through a program’s mandatory authorization.
Most technical assistance activities within mandatory programs support the delivery of some level
of financial assistance as part of a contract or agreement (Figure 3). These activities could
include providing designs, standards, and specifications needed to install approved conservation
practices and activities.
were not unique to CO (e.g., reductions caused by fiscal pressures and sequestration in FY2013 and funding increases through budget agreements in FY2014-FY2021). In inflation-adjusted dollars, CO has declined over the past 20 years (see Figure 2). Figure 2. Conservation Operations (CO) Appropriated Funding, FY1999-FY2022

Sources: Figure created byFigure created by CRS using historical appropriations; and Office of Management and Budget, CRS using historical appropriations; and Office of Management and Budget, Table
10.1—Gross Domestic Product and Deflators Used in the Historical Tables: 1940–2026, May 2021, at , May 2021, at
https://www.whitehouse.gov/wp-content/uploads/2021/05/hist10z1_fy22.xlsx. https://www.whitehouse.gov/wp-content/uploads/2021/05/hist10z1_fy22.xlsx.
NotesNote: The blue line is funding in nominal dol ars, whereas the inflation-adjusted red line is calculated using the The blue line is funding in nominal dol ars, whereas the inflation-adjusted red line is calculated using the
gross domestic product price deflator in FY2022 dol ars.gross domestic product price deflator in FY2022 dol ars. Green dots are FY2022 CO totals in the FY2022
Administration’s request, House-passed H.R. 4502, Division B, and Senate-reported S. 2599, respectively.
Generally, technical assistance prior to a producer entering into a contract for The other side of agricultural conservation assistance is financial assistance. Financial assistance provides direct payments to landowners to implement certain conservation practices or to conserve and protect natural resources on private land. Most programs providing financial financial assistance are authorized through omnibus farm bills and receive funding from mandatory sources—thus, they do not require an annual appropriation. In addition to technical assistance provided through CTA and CO, technical assistance is part of farm bill conservation programs, which are funded through a program’s mandatory authorization. Most technical assistance activities within mandatory programs support the delivery of some level of financial assistance as part of a contract or agreement (Figure 3). These activities could include providing designs, standards, and specifications needed to install approved conservation practices and activities. Generally, technical assistance prior to a producer entering into a contract for financial assistance is considered part of CTA. After a producer signs a contract for financial assistance, technical assistance is funded from the individual mandatory program rather than CTA. Once the financial assistance contract is complete, most mandatory program funds are no longer available to support Congressional Research Service 5 link to page 9 Agricultural Conservation: FY2022 Appropriations ongoing assistance in maintaining the conservation plans, practices, and activities implemented under the financial assistance programassistance
is considered part of CTA. After a producer signs a contract for financial assistance, technical
assistance is funded from the individual mandatory program rather than CTA. Once the financial
assistance contract is complete, most mandatory program funds are no longer available to support
ongoing assistance in maintaining the conservation plans, practices, and activities implemented
under the financial assistance program.
As Figure 3 shows, mandatory programs fund the majority of NRCS technical assistance.
Proposals to increase financial assistance for the farm bill conservation programs would likely
require a corresponding increase in the amount of technical assistance needed for implementation.
For example, the Build Back Better Act (H.R. 5376, passed by the House) would increase
Congressional Research Service

5

---

Agricultural Conservation: FY2022 Appropriations

selected farm bill conservation programs and CTA.4 Without an increase in discretionary
spending accounts, implementation of additional financial assistance could potentially be
hindered since technical assistance prior to a financial assistance contract generally is funded
through discretionary spending accounts (i.e., CTA). .
Figure 3. FY2021 Estimated NRCS Technical Assistance, by Program
(budget authority in millions of dollars) (budget authority in millions of dollars)

Source: Figure created by CRS usingFigure created by CRS using USDA, USDA, FY2022 Budget Explanatory Notes—Natural Resources Conservation
Service, p. 29. , p. 29.
Notes: The figure reflects the total resources for staff, as reported by NRCS, as necessary to implement NRCS- The figure reflects the total resources for staff, as reported by NRCS, as necessary to implement NRCS-
administered conservation programs, including technical assistance for the Conservation Reserve Program administered conservation programs, including technical assistance for the Conservation Reserve Program
(CRP). The total for discretionary technical assistance includes associated science and technology programs (CRP). The total for discretionary technical assistance includes associated science and technology programs
funded through the Conservation Operations account. The total for mandatory technical assistance includes the funded through the Conservation Operations account. The total for mandatory technical assistance includes the
amount reported by NRCS as necessary to implement farm bill authorized conservation programs. ACEP = amount reported by NRCS as necessary to implement farm bill authorized conservation programs. ACEP =
Agricultural Conservation Easement Program; CSP = Conservation Stewardship Program; EQIP = Environmental Agricultural Conservation Easement Program; CSP = Conservation Stewardship Program; EQIP = Environmental
Quality Incentives Program; PMC = Plant Material Centers; and RCPP = Regional Conservation Partnership Quality Incentives Program; PMC = Plant Material Centers; and RCPP = Regional Conservation Partnership
Program. ACEP, CRP, CSP, EQIP, and RCPP are authorized through farm bil s, most recently the Agriculture Program. ACEP, CRP, CSP, EQIP, and RCPP are authorized through farm bil s, most recently the Agriculture
Improvement Act of 2018 (P.L. 115-334). Improvement Act of 2018 (P.L. 115-334). Expired Farm Bill Programs include Agricultural Water Enhancement include Agricultural Water Enhancement
Program, Chesapeake Bay Watershed Program, Farm and Ranchland Protection Program, Grassland Reserve Program, Chesapeake Bay Watershed Program, Farm and Ranchland Protection Program, Grassland Reserve
Program, Wetlands Reserve Program, and Wildlife Habitat Incentives Program. Program, Wetlands Reserve Program, and Wildlife Habitat Incentives Program. Other Farm Bill Programs include include
the NRCS portion of Agricultural Management Assistance, Voluntary Public Access and Habitat Incentive the NRCS portion of Agricultural Management Assistance, Voluntary Public Access and Habitat Incentive
Program, Feral Swine Eradication and Control Pilot, and Healthy Forest Reserve Program. Program, Feral Swine Eradication and Control Pilot, and Healthy Forest Reserve Program.

4 H.R. 5376 (as passed by the House) would increase selected farm bill conservation programs by $22.3 billion over
five years. The act would also increase Conservation Technical Assistance (CTA) by $950 million over five years, with
$200 million for the NRCS to provide technical assistance and $100 million for administrative costs. The remaining
CTA funds would be directed to climate change-related initiatives.
Congressional Research Service

6

---

link to page 10 link to page 10
Agricultural Conservation: FY2022 Appropriations

As Figure 3 shows, mandatory programs fund the majority of NRCS technical assistance. Proposals to increase financial assistance for the farm bill conservation programs would likely require a corresponding increase in the amount of technical assistance needed for implementation. For example, the Build Back Better Act (H.R. 5376, passed by the House) would increase Congressional Research Service 6 link to page 10 link to page 10 Agricultural Conservation: FY2022 Appropriations selected farm bill conservation programs and CTA.5 Without an increase in discretionary spending accounts, implementation of additional financial assistance could be hindered since technical assistance prior to a financial assistance contract generally is funded through discretionary spending accounts (i.e., CTA). NRCS Staffing Levels
The CO account funds close to half of NRCS staff; other smaller discretionary programs and The CO account funds close to half of NRCS staff; other smaller discretionary programs and
mandatory conservation programs account for the remainder. The total number of permanent mandatory conservation programs account for the remainder. The total number of permanent
positions at NRCS funded by CO declined from FY2014 through FY2019positions at NRCS funded by CO declined from FY2014 through FY2019. The number of
unfilled positions at the agency further magnified this reduction in staff until FY2020, when there
was a slight increase (see (see Figure 4). The Administration’s FY2022 request includes no increase . The Administration’s FY2022 request includes no increase
in proposed staffin proposed staff compared with FY2021, , notwithstanding a requested increase in CO funding of $53.6 million compared notwithstanding a requested increase in CO funding of $53.6 million compared
with FY2021. According to the request, this increase in funding would be used primarily for with FY2021. According to the request, this increase in funding would be used primarily for
climate change-related initiatives.climate change-related initiatives.56 If FY2021 staffing estimates were realized and no additional If FY2021 staffing estimates were realized and no additional
staff were added in FY2022, NRCS staffing levels would have increased from their recent low staff were added in FY2022, NRCS staffing levels would have increased from their recent low
levels (FY2018 through FY2020) but would still remain below levels (FY2018 through FY2020) but would still remain below the higher staffing levels higher staffing levels experienced
that prevailed before FY2017 (seebefore FY2017 (see Figure 4). .
Figure 4. Total Natural Resources Conservation Service (NRCS) Staffing, FY1999-
FY2022

Source: Figure created by CRS using annual USDA Budget Explanatory Notes. Figure created by CRS using annual USDA Budget Explanatory Notes.
Notes: A staff year is equivalent to one ful -time person working for one year. CO = Conservation Operations
and EOY = end of year.

5 5 H.R. 5376 (as passed by the House) would provide over $21 billion over five years in additional funding for existing farm bill conservation programs. The act would also increase Conservation Technical Assistance (CTA) by $950 million over five years, with $200 million for the NRCS to provide technical assistance and $100 million for administrative costs. The remaining CTA funds would be directed to climate change-related initiatives. For additional information, see CRS In Focus IF11988, Build Back Better Act: Agriculture and Forestry Provisions. 6 For additional information, see CRS Report R46454, For additional information, see CRS Report R46454, Climate Change Adaptation: U.S. Department of Agriculture. .
Congressional Research Service Congressional Research Service

7 7

---

link to page 6 link to page 15 link to page 6 link to page 15 Agricultural Conservation: FY2022 Appropriations

Watershed Programs
The House-passed and Senate-reported bills both containNotes: A staff year is equivalent to one ful -time person working for one year. CO = Conservation Operations and EOY = end of year. Watershed Programs The FY2022 appropriation contains funding for watershed activities, funding for watershed activities,
including Watershed and Flood Prevention Operations (WFPO)—a program that assists state and including Watershed and Flood Prevention Operations (WFPO)—a program that assists state and
local organizations with planning and installing measures to prevent erosion, sedimentation, and local organizations with planning and installing measures to prevent erosion, sedimentation, and
flood damage.flood damage.6 The House-passed bill would reduce7 The appropriation reduces WFPO funding to $ WFPO funding to $160100.0 million, $.0 million, $1575.0 .0
million less than the FY2021 level million less than the FY2021 level of $175.0 million. of $175.0 million. The Senate-reported bill would increase
funding to $198.3 million, with the $23.3 million increase directed to earmarks. The
Administration’s FY2022 request proposes a consistent $175 million.
WFPO consists of projects built under two authorities—the Watershed Protection and Flood WFPO consists of projects built under two authorities—the Watershed Protection and Flood
Prevention Act of 1954 (P.L. 83-566) and the Flood Control Act of 1944 (P.L. 78-534). The vast Prevention Act of 1954 (P.L. 83-566) and the Flood Control Act of 1944 (P.L. 78-534). The vast
majority of the projects (referred to as P.L. 566 projects) have been built pursuant to the authority majority of the projects (referred to as P.L. 566 projects) have been built pursuant to the authority
of P.L. 83-566, which authorizes the chief of the NRCS to approve construction of smaller of P.L. 83-566, which authorizes the chief of the NRCS to approve construction of smaller
watershed projects.watershed projects.78 Congressional approval is needed for larger P.L. 566 projects. The Flood Congressional approval is needed for larger P.L. 566 projects. The Flood
Control Act of 1944 authorized 11 specific projects, referred to as P.L. 534 projects, which are Control Act of 1944 authorized 11 specific projects, referred to as P.L. 534 projects, which are
much larger and more expensive than P.L. 566 projects. much larger and more expensive than P.L. 566 projects.
Since FY2014, Congress has directed a portion of CO funds to selected WFPO activities. The Since FY2014, Congress has directed a portion of CO funds to selected WFPO activities. The
enacted enacted FY2021FY2022 appropriation included similar directive language but shifted a portion to the appropriation included similar directive language but shifted a portion to the
WFPO account WFPO account (Table 1). The . The House-passed and Senate-reported bills doenacted appropriation does not transfer CO funds not transfer CO funds
for WFPO activitiesfor WFPO activities, but both bills would but does direct WFPO funding to specific activities direct WFPO funding to specific activities (Table 3). .
The House-passed bill would direct $65.0 million of available WFPO funding to projects that The House-passed bill would direct $65.0 million of available WFPO funding to projects that
could commence promptly, address regional priorities, or are authorized under the Flood Control could commence promptly, address regional priorities, or are authorized under the Flood Control
Act of 1944 (P.L. 534 projects). The Senate-reported bill includes similar language for $10.0 Act of 1944 (P.L. 534 projects). The Senate-reported bill includes similar language for $10.0
million of available WFPO funds. The Senate-reported bill also would direct $23.3 million for million of available WFPO funds. The Senate-reported bill also would direct $23.3 million for
WFPO earmarks and $10.0 million for projects that provide water to rural communities.WFPO earmarks and $10.0 million for projects that provide water to rural communities.
The House-passed and Senate-reported bills include $10.0 The FY2022 appropriation mirrors the Senate-reported bill. The FY2022 appropriation also includes $1 million for the Watershed million for the Watershed
Rehabilitation Program––Rehabilitation Program––the same as$9 million less than enacted in FY2021. The Watershed Rehabilitation Program enacted in FY2021. The Watershed Rehabilitation Program
repairs aging dams built by USDA under WFPO.repairs aging dams built by USDA under WFPO. The Biden Administration also requests $10.0
million in FY2022.
The 2018 farm bill provides $50.0 million annually in permanent mandatory funding for WFPO The 2018 farm bill provides $50.0 million annually in permanent mandatory funding for WFPO
and Watershed Rehabilitation activities. The mandatory funding is in addition to discretionary and Watershed Rehabilitation activities. The mandatory funding is in addition to discretionary
funding provided through annual appropriations.funding provided through annual appropriations.89 Also separate from annual appropriations, the Also separate from annual appropriations, the
Infrastructure Investment and Jobs ActIIJA (P.L. 117-58, Division J, Title I) provides $918.0 million (P.L. 117-58, Division J, Title I) provides $918.0 million
for NRCS watershed programs in FY2022, including $500.0 million for WFPO, $118.0 million for NRCS watershed programs in FY2022, including $500.0 million for WFPO, $118.0 million
for the Watershed Rehabilitation Program, and $300.0 million for the Emergency Watershed for the Watershed Rehabilitation Program, and $300.0 million for the Emergency Watershed
Protection Program.Protection Program.10 Funding is Funding is available until expended. The FY2022 joint explanatory statement notes the IIJA additions in reference to the reductions in the annual appropriated levels. available until expended.

67 For additional information, see CRS Report R46471, For additional information, see CRS Report R46471, Federally Supported Projects and Programs for Wastewater,
Drinking Water, and Water Supply Infrastructure. .
78 In general, no P.L. 566 project may exceed 250,000 acres, and no structure may exceed 12,500 acre-feet of floodwater In general, no P.L. 566 project may exceed 250,000 acres, and no structure may exceed 12,500 acre-feet of floodwater
detention capacity or 25,000 acre-feet of total capacity. detention capacity or 25,000 acre-feet of total capacity.
89 For additional discussion of changes made in the 2018 farm bill, see CRS Report R45698, For additional discussion of changes made in the 2018 farm bill, see CRS Report R45698, Agricultural Conservation
in the 2018 Farm Bill. .
10 For additional information, see CRS In Focus IF11990, Infrastructure Investment and Jobs Act (IIJA): Funding for USDA Broadband, Watershed, and Bioproduct Programs. Congressional Research Service Congressional Research Service

8 8

---

link to page 12 link to page 12 Agricultural Conservation: FY2022 Appropriations

Congressionally Directed Spending (Earmarks)
For FY2022, the House and Senate resumed allowing earmarks in appropriations.For FY2022, the House and Senate resumed allowing earmarks in appropriations.9 11 Appropriations Appropriations
acts last contained earmarks in FY2010.acts last contained earmarks in FY2010.1012 Earmarks generally are defined as congressionally generally are defined as congressionally
directed spending that noncompetitively benefits a specific entity or locality. Both chambers’ directed spending that noncompetitively benefits a specific entity or locality. Both chambers’
rules require that appropriations reports disclose earmarks.rules require that appropriations reports disclose earmarks.1113
The House-passed bill for FY2022 does not include earmarks to conservation accounts. The The House-passed bill for FY2022 does not include earmarks to conservation accounts. The
Senate-reported bill contains 24 earmarks totaling $42.9 million in two accounts—CO and WFPO Senate-reported bill contains 24 earmarks totaling $42.9 million in two accounts—CO and WFPO
(Table 2)..
Table 2. FY2022 Earmark Totals in S. 2599 The enacted appropriation includes all of the Senate-reported earmarks, including $19.6 million of earmarks in CO (2% of the total FY2022 appropriation of $904.4 million) and $23.3 million of earmarks in WFPO (23% of the total FY2022 appropriation of $100.0 million). Table 2. FY2022 Earmark Totals, by State and Conservation Program
(dollars in thousands) (dollars in thousands)
Conservation
Watershed and Flood
State
Operation
Prevention Operations
Total
Connecticut Connecticut
5,000 5,000
0 0
5,000 5,000
Il inois Il inois
1,000 1,000
0 0
1,000 1,000
Kansas Kansas
0 0
500 500
500 500
Mississippi Mississippi
0 0
8,400 8,400
8,400 8,400
New Mexico New Mexico
1,227 1,227
0 0
1,227 1,227
Ohio Ohio
1,763 1,763
0 0
1,763 1,763
Oregon Oregon
750 750
9,375 9,375
10,125 10,125
Pennsylvania Pennsylvania
3,247 3,247
0 0
3,247 3,247
Rhode Island Rhode Island
374 374
5,000 5,000
5,374 5,374
Vermont Vermont
6,250 6,250
0 0
6,250 6,250
Total Earmarks
19,611
23,275
42,886
Account Total
937,964
198,275
NA
Percent Earmarked
2%
12%
NA
Source: Prepared byPrepared by CRS using CRS using Community Project Funding/Congressionally Directed Spending (earmark) Congressionally Directed Spending (earmark) tables in “Explanatory Statement Submitted by Ms. DeLauro, Chair of the House Committee on Appropriations, Regarding the House Amendment to H.R. 2471, Consolidated Appropriations Act, 2022,” Congressional Record, vol. 168, part 42-Book III (March 9, 2022), pp. H1732-H1737tables in S.Rept. 117-34
(accompanying S. 2599). .
WFPO was the conservation program most affected by earmarks before the moratorium in WFPO was the conservation program most affected by earmarks before the moratorium in
FY2011; the account included earmarks in amounts that varied annually. For example, in FY2011; the account included earmarks in amounts that varied annually. For example, in
FY2009, 97% of the funds appropriated for WFPO were earmarked for specific projects, whereas FY2009, 97% of the funds appropriated for WFPO were earmarked for specific projects, whereas
in FY2010, 74% of appropriated WFPO funds were earmarked.in FY2010, 74% of appropriated WFPO funds were earmarked.1214 The high percentage of The high percentage of

911 CRS Report R46722, CRS Report R46722, Community Project Funding: House Rules and Committee Protocols. .
1012 CRS Report R40976, CRS Report R40976, Earmarks Disclosed by Congress: FY2008-FY2010 Regular Appropriations Bills. .
1113 CRS Report RS22866, CRS Report RS22866, Earmark Disclosure Rules in the House: Member and Committee Requirements; and CRS ; and CRS
Report RS22867, Report RS22867, Earmark Disclosure Rules in the Senate: Member and Committee Requirements. .
1214 The Omnibus Appropriations Act, 2009 (P.L. 111-8) appropriated $24.3 million for Watershed and Flood Prevention The Omnibus Appropriations Act, 2009 (P.L. 111-8) appropriated $24.3 million for Watershed and Flood Prevention
Operations (WFPO), of which $23.6 million was for congressionally designated projects. The Agriculture, Rural Operations (WFPO), of which $23.6 million was for congressionally designated projects. The Agriculture, Rural
Development, Food and Drug Administration, and Related Agencies Appropriations Act, 2010 (P.L. 111-80) Development, Food and Drug Administration, and Related Agencies Appropriations Act, 2010 (P.L. 111-80)
appropriated $30 million for WFPO, of which $22.1 million was for congressionally designated projects. appropriated $30 million for WFPO, of which $22.1 million was for congressionally designated projects.
Congressional Research Service Congressional Research Service

9 9

---

link to page 13 link to page 13
Agricultural Conservation: FY2022 Appropriations

earmarks and program inflexibility were cited among several reasons that no funding for the earmarks and program inflexibility were cited among several reasons that no funding for the
program was requested in annual budget requests in some years.program was requested in annual budget requests in some years.1315
Mandatory Conservation Programs
Mandatory conservation programs generally are authorized in omnibus farm bills and receive Mandatory conservation programs generally are authorized in omnibus farm bills and receive
funding from the CCC—thus, they do not require an annual appropriation. The 2018 farm bill funding from the CCC—thus, they do not require an annual appropriation. The 2018 farm bill
reauthorized mandatory funding through FY2023 for many of the agricultural conservation reauthorized mandatory funding through FY2023 for many of the agricultural conservation
programs.programs.1416 Because these programs—with the exception of the Conservation Reserve Program Because these programs—with the exception of the Conservation Reserve Program
(CRP)—are classified as mandatory, nonexempt spending, they are reduced annually by about 6% (CRP)—are classified as mandatory, nonexempt spending, they are reduced annually by about 6%
by budget sequestration by budget sequestration (Figure 5)..1517
Figure 5. Projected Mandatory Conservation Program Funding, FY2021 and FY2022
(budget authority in millions of dollars) (budget authority in millions of dollars)

Sources: Figure created byFigure created by CRS using Congressional Budget OfficeCRS using Congressional Budget Office (CBO), (CBO), Baseline Projections: USDA’s Farm
Programs,, July 2021, at https://www.cbo.gov/system/files/2021-07/51317-2021-07-usda.pdf; and appropriations for July 2021, at https://www.cbo.gov/system/files/2021-07/51317-2021-07-usda.pdf; and appropriations for
CHIMPS.Changes in Mandatory Program Spending (CHIMPS). Notes: Seq. & CHIMPS = Announced sequestration and changes in mandatory program spending (i.e., transfers to the Farm Production and Conservation Business Center); Other = budget authority for the Emergency Forestry Conservation Reserve Program, Grassroots Source Water Protection, Feral Swine Eradication,

1315 Annual requests for no funding for WFPO began in FY2006 under the George W. Bush Administration and Annual requests for no funding for WFPO began in FY2006 under the George W. Bush Administration and
continued until the Obama Administration’s FY2016 request, which marked the first time in a decade that an continued until the Obama Administration’s FY2016 request, which marked the first time in a decade that an
Administration requested funding for the program. Administration requested funding for the program.
1416 For authorized funding levels for mandatory conservation programs, see CRS Report R40763, For authorized funding levels for mandatory conservation programs, see CRS Report R40763, Agricultural
Conservation: A Guide to Programs. .
1517 For additional discussion on sequestration, see Appendix C of CRS Report R46951, For additional discussion on sequestration, see Appendix C of CRS Report R46951, Agriculture and Related
Agencies: FY2022 Appropriations. .
Congressional Research Service Congressional Research Service

10 10

---

link to page 15 link to page 15 Agricultural Conservation: FY2022 Appropriations

Notes: Seq. & CHIMPS = Announced sequestration and changes in mandatory program spending (i.e., transfers
to the Farm Production and Conservation Business Center); Other = budget authority for the Emergency
Forestry Conservation Reserve Program, Grassroots Source Water Protection, Feral Swine Eradication,
Agricultural Management Assistance program, Voluntary Public Access and Habitat Incentive, Watershed and Agricultural Management Assistance program, Voluntary Public Access and Habitat Incentive, Watershed and
Flood Prevention Operations, Watershed Rehabilitation Program, Conservation User Fees, and programs Flood Prevention Operations, Watershed Rehabilitation Program, Conservation User Fees, and programs
repealed by the 2014 farm bil ; RCPP = Regional Conservation Partnership Program; ACEP = Agricultural repealed by the 2014 farm bil ; RCPP = Regional Conservation Partnership Program; ACEP = Agricultural
Conservation Easement Program; CSP = Conservation Stewardship Program; EQIP = Environmental Quality Conservation Easement Program; CSP = Conservation Stewardship Program; EQIP = Environmental Quality
Incentives Program; and CRP = Conservation Reserve Program. CSP amounts are divided by contracts Incentives Program; and CRP = Conservation Reserve Program. CSP amounts are divided by contracts
authorized under the Agricultural Act of 2014 (P.L. 113-79) and Agriculture Improvement Act of 2018 (P.L. 115-authorized under the Agricultural Act of 2014 (P.L. 113-79) and Agriculture Improvement Act of 2018 (P.L. 115-
334). 334).
Congress has used annual Agriculture appropriations acts to reduce funding to mandatory Congress has used annual Agriculture appropriations acts to reduce funding to mandatory
conservation programs through Changes in Mandatory Program Spending (CHIMPS) every year conservation programs through Changes in Mandatory Program Spending (CHIMPS) every year
from FY2003 to FY2017.from FY2003 to FY2017.1618 The FY2018 Consolidated Appropriations Act (P.L. 115-141) marked The FY2018 Consolidated Appropriations Act (P.L. 115-141) marked
the first appropriation since FY2002 that did not include CHIMPS to conservation programs, thus the first appropriation since FY2002 that did not include CHIMPS to conservation programs, thus
allowing all mandatory conservation programs to use their fully authorized level of funding, allowing all mandatory conservation programs to use their fully authorized level of funding,
minus sequestration. minus sequestration.
In FY2019, Congress began transferring funds to the Farm Production and Conservation (FPAC) In FY2019, Congress began transferring funds to the Farm Production and Conservation (FPAC)
Business Center from other accounts, including from mandatory conservation programs.Business Center from other accounts, including from mandatory conservation programs.1719 This This
transfer creates CHIMPS in three conservation programs—Agricultural Conservation Easement transfer creates CHIMPS in three conservation programs—Agricultural Conservation Easement
Program (ACEP), Conservation Stewardship Program (CSP), and Environmental Quality Program (ACEP), Conservation Stewardship Program (CSP), and Environmental Quality
Incentives Program (EQIP).Incentives Program (EQIP).18 The FY2022 House-passed and Senate-reported bills both include
20 The FY2022 appropriation includes the Administration’s request for transferring $60.2 million in conservation program CHIMPS to the Administration’s request for transferring $60.2 million in conservation program CHIMPS to
the FPAC Business Center. The same CHIMPS amount ($60.2 million) for the same conservation the FPAC Business Center. The same CHIMPS amount ($60.2 million) for the same conservation
programs was included in each annual appropriation from FY2019 through FY2021. programs was included in each annual appropriation from FY2019 through FY2021.
Policy-Related Provisions
In addition to setting budgetary amounts, the Agriculture appropriations bill also may include In addition to setting budgetary amounts, the Agriculture appropriations bill also may include
policy-related provisions that direct how the executive branch is to carry out an appropriation. policy-related provisions that direct how the executive branch is to carry out an appropriation.
These provisions may have the force of law if they are included in the text of an appropriations These provisions may have the force of law if they are included in the text of an appropriations
act, but their effect is generally limited to the current fiscal year (seeact, but their effect is generally limited to the current fiscal year (see Table 3). Policy-related . Policy-related
provisions in appropriations acts generally do not amend the provisions in appropriations acts generally do not amend the U.S. Code or have a multiyear effect. or have a multiyear effect.
For example, the WFPO program historically has been called the “small watershed program” For example, the WFPO program historically has been called the “small watershed program”
because no project may exceed 250,000 acres, and no structure may exceed 12,500 acre-feet of because no project may exceed 250,000 acres, and no structure may exceed 12,500 acre-feet of
floodwater detention capacity or 25,000 acre-feet of total capacity. The floodwater detention capacity or 25,000 acre-feet of total capacity. The FY2021FY2022 enacted enacted
appropriation includes a policy provision that waives the 250,000-acre project limit when the appropriation includes a policy provision that waives the 250,000-acre project limit when the
project’s primary purpose is something other than flood prevention.21 This provision does not
1618 Changes in Mandatory Program Spending (CHIMPS) are adjustments via an appropriations act that can change Changes in Mandatory Program Spending (CHIMPS) are adjustments via an appropriations act that can change
available funding for mandatory programs. CHIMPS usually change spending for one year and may score as an available funding for mandatory programs. CHIMPS usually change spending for one year and may score as an
increase or decrease to outlays. They do not change the underlying authority of the program in law. For additional increase or decrease to outlays. They do not change the underlying authority of the program in law. For additional
background on CHIMPS, see CRS In Focus IF10041, background on CHIMPS, see CRS In Focus IF10041, Reductions to Mandatory Agricultural Conservation Programs in
Appropriations Law. .
1719 For additional background on the Farm Production and Conservation (FPAC) Business Center and conservation For additional background on the Farm Production and Conservation (FPAC) Business Center and conservation
programs, see CRS Report R46728, programs, see CRS Report R46728, FY2021 Appropriations for Agricultural Conservation. .
1820 The Administration’s FY2022 request to transfer $60.2 million to the FPAC Business Center from mandatory The Administration’s FY2022 request to transfer $60.2 million to the FPAC Business Center from mandatory
conservation programs would be divided as follows: $8.3 million from the Agricultural Conservation Easement conservation programs would be divided as follows: $8.3 million from the Agricultural Conservation Easement
Program (ACEP), $21.2 million from the Conservation Stewardship Program (CSP), and $30.7 million from the Program (ACEP), $21.2 million from the Conservation Stewardship Program (CSP), and $30.7 million from the
Environmental Quality Incentives Program (EQIP). None of the funds is proposed to come from the Conservation Environmental Quality Incentives Program (EQIP). None of the funds is proposed to come from the Conservation
Reserve Program. Reserve Program.
21 The appropriation for NRCS in P.L. 116-260 states, “Provided, That for funds provided by this Act or any other prior Act, the limitation regarding the size of the watershed or subwatershed exceeding two hundred and fifty thousand acres in which such activities can be undertaken shall only apply for activities undertaken for the primary purpose of flood Congressional Research Service Congressional Research Service

11 11

---

link to page 15 link to page 15 Agricultural Conservation: FY2022 Appropriations

project’s primary purpose is something other than flood prevention.19 This provision does not
amend the WFPO authorization and is effective only for the funds provided during the current amend the WFPO authorization and is effective only for the funds provided during the current
appropriation year.appropriation year.2022 The House-passed and Senate-reported bills for FY2022 both include a The House-passed and Senate-reported bills for FY2022 both include a
similar provision. similar provision.
Many of these provisions have been included in past years’ appropriations acts. Some provisions Many of these provisions have been included in past years’ appropriations acts. Some provisions
in report language and bill text address conservation programs that are not authorized or funded in report language and bill text address conservation programs that are not authorized or funded
within the annual appropriations (i.e., mandatory spending for farm bill-authorized programs). within the annual appropriations (i.e., mandatory spending for farm bill-authorized programs).
Table 3 compares some of the conservation-related policy provisions in the Farm Production and compares some of the conservation-related policy provisions in the Farm Production and
Conservation Programs (Title II) and General Provisions (Title VII) titles of the enacted FY2021 Conservation Programs (Title II) and General Provisions (Title VII) titles of the enacted FY2021
Agriculture appropriation with those in the House-passed and Senate-reported bills for FY2022.
Many of these provisions were included in past years’ appropriations actsand FY2022 Agriculture appropriation bills. The table is divided by . The table is divided by
agency and account according to their location within the bills. agency and account according to their location within the bills.
Table 3. Selected Conservation Policy Provisions in the FY2021 and FY2022
Appropriations Acts
FY2021
FY2022
Enacted, P.L. 116-260
House-passed, H.R. 4502
Senate-reported, S. 2599 Enacted, P.L. 117-103
Farm Production and Conservation (FPAC) Business Center
FPAC Business Center. Directs Directs
Same as FY2021 enacted (Title II).the transfer of $60.2
Same as FY2021 enacted ( Same as FY2021 enacted (Title II). ).
the transfer of $60.2 mil ion from mil ion from
mandatory conservation program mandatory conservation program
accounts to the Business Center accounts to the Business Center
account (account (Title II). ).
Natural Resources Conservation Service (NRCS)
Conservation Operation (CO).
No comparable provision.Directs $3.0 mil ion
No comparable provision. No comparable provision.
Directs $3.0 mil ion of CO to of CO to
projects authorized under the Flood projects authorized under the Flood
Control Act of 1944 (Control Act of 1944 (Title II). ).
No comparable provision. No comparable provision.
Directs $ Directs $15.0 mil ion of CO for
No comparable provision.
climate change-related initiatives,
including climate science and hubs
(Title II).
No comparable provision.
No comparable provision.
Directs $19.6 mil ion of CO for 17 19.6 mil ion of CO for 17
“Congressionally Directed “Congressionally Directed
Spending” projects (Title II).

19 The appropriation for NRCS in P.L. 116-260 states, “Provided, That for funds provided by this Act or any other prior
Act, the limitation regarding the size of the watershed or subwatershed exceeding two hundred and fifty thousand acres
in which such activities can be undertaken shall only apply for activities undertaken for the primary purpose of flood
prevention (including structural and land treatment measures).” The underlying limitation referred to is 16 U.S.C.
§1002.
20 The provision applies to the $175 million in FY2021 and any funds previously provided. Since WFPO funding is
available until expended, it is possible that the waiver could carry forward into future fiscal years but only for funds
made available in or prior to FY2021.
Congressional Research Service

12

---

Agricultural Conservation: FY2022 Appropriations

FY2021
FY2022
Enacted, P.L. 116-260
House-passed, H.R. 4502
Senate-reported, S. 2599
No comparable provision.
No comparable provision.
Directs $15.0 mil ion of CO to
National Fish and Wildlife
Foundation to establish a voluntary
cost-share program for agricultural
producers to increase resilience
from adverse weather events
(Title II).
See Office of Urban Agriculture and
Directs $9.5 mil ion of CO for the
Directs $8.0Spending” projects (Title II). See Office of Urban Agriculture and Innovative Production Directs $8.5 mil ion of CO for the Urban Agriculture mil ion of CO for the
Innovative Production line, below,
Urban Agriculture and Innovative
Urban Agriculture and Innovative
line, below, providing $7.0 mil ion for the office providing $7.0 mil ion for the office
Production Program (Title II).
(§754). and Innovative Production Program (Production Program (Title II). ).
(§754).
No comparable provision. No comparable provision.
Directs $ Directs $107.0 mil ion of CO for .0 mil ion of CO for
No comparable provision.
Healthy Forests Reserve Program Healthy Forests Reserve Program
((Title II). ).
Watershed Operations. Limits Limits
the application of the Same as FY2021 enacted ( Same as FY2021 enacted (Title II). ).
No comparable provision.
the application of the 250,000-acre 250,000-acre
limitation in Watershed and Flood limitation in Watershed and Flood
Prevention Operations (WFPO) to Prevention Operations (WFPO) to
activities for which the primary activities for which the primary
purpose is flood prevention (purpose is flood prevention (Title
II). ).
No comparable provision. No comparable provision.
No comparable provision.
Directs $23.3 mil ion of WFPO for Directs $23.3 mil ion of WFPO for
7 “Congressionally Directed 7 “Congressionally Directed
Spending” projects (Spending” projects (Title II). ).
Directs $65.0 mil ion of available Directs $65.0 mil ion of available
Same as FY2021 enacted (Title II).
Similar to FY2021 enacted but
funds to be allocated to projects that
reduced to $10.0 mil ion of
funds to be allocated to Similar to FY2021 enacted but reduced to $10.0 projects that commence promptly, address select commence promptly, address select
mil ion of available funds (available funds (Title II). ).
regional priorities, or are authorized regional priorities, or are authorized
under the Flood Control Act of 1944 under the Flood Control Act of 1944
((Title II). ).
Directs $10.0 mil ion to projects Directs $10.0 mil ion to projects
No comparable provision.providing water to
Same as FY2021 enacted ( Same as FY2021 enacted (Title II). ).
providing water to rural rural
communities (communities (Title II). ).
General Provisions
Agricultural Management
Same as FY2021 enacted (§707). prevention (including structural and land treatment measures).” The underlying limitation referred to is 16 U.S.C. §1002. 22 The provision applies to the $100 million in FY2022 and any funds previously provided. Since WFPO funding is available until expended, it is possible that the waiver could carry forward into future fiscal years but only for funds made available in or prior to FY2022. Congressional Research Service 12 link to page 17 link to page 18 Agricultural Conservation: FY2022 Appropriations FY2021 FY2022 Enacted, P.L. 116-260 Enacted, P.L. 117-103 General Provisions Agricultural Management Assistance (AMA). Same as FY2021 enacted (§707).
Same as FY2021 enacted (§707).
Assistance (AMA). Allows AMA Allows AMA
funds to remain available until funds to remain available until
expended (expended (§707). ).
Experienced Services Program.
Same as FY2021 enacted (§767).Allows use of
Same as FY2021 enacted ( Same as FY2021 enacted (§755).
Allows use of 759). WFPO, Watershed WFPO, Watershed
Rehabilitation, and Emergency Rehabilitation, and Emergency
Watershed Protection program Watershed Protection program
funds to provide technical assistance funds to provide technical assistance
through the Agricultural through the Agricultural
Conservation Experienced Services Conservation Experienced Services
(ACES) program, a part-time (ACES) program, a part-time
employment program for retirees employment program for retirees
((§786).).
Water Bank. Provides $4.0 mil ion Provides $4.0 mil ion
No comparable provision.
for the Water Bank Same as FY2021 enacted (Same as FY2021 enacted (§750).
for the Water Bank program (§749).
Congressional Research Service

13

---

link to page 17 link to page 19 Agricultural Conservation: FY2022 Appropriations

FY2021
FY2022
Enacted, P.L. 116-260
House-passed, H.R. 4502
Senate-reported, S. 2599769). program (§749).
Wetland Mitigation Banking.
No comparable provision.Allocates $5.0 mil ion
Same as FY2021 enacted ( Same as FY2021 enacted (§753).
Allocates $5.0 mil ion 771). for farm bil for farm bil
mitigation banks. Prioritizes areas mitigation banks. Prioritizes areas
with a with a significant number of significant number of
individual wetlands and conservation individual wetlands and conservation
compliance requests (compliance requests (§763). ).
Office of Urban Agriculture and
Innovative Similar language but moved under Similar language but moved under
Similar language but moved under
Innovative Conservation Production. Allocates $7.0 mil ion for establishing the Operations line and increased to $8.5 mil ion—see office Production. Allocates
Conservation Operations line and
Conservation Operations line and
$7.0 mil ion for establishing the office increased to $9.5 million—see
increased to $8.0 mil ion—see
within NRCS (within NRCS (§754). ).
above ( above (Title II). ).
above (Title II).
Source: Prepared byPrepared by CRS from P.L. 116-260CRS from P.L. 116-260; H.R. 4502, Division B; and S. 2599 and P.L. 117-103. .
Note: These policy changes are relevant only for the fiscal year cited. These policy changes are relevant only for the fiscal year cited.
Beyond the text of an appropriations act, the explanatory statement accompanying the final Beyond the text of an appropriations act, the explanatory statement accompanying the final
appropriations—and the House and Senate report language that generally accompanies the appropriations—and the House and Senate report language that generally accompanies the
committee-reported bills—may provide policy instructions. These documents do not have the committee-reported bills—may provide policy instructions. These documents do not have the
force of law but often explain congressional intent, which Congress expects the agencies to force of law but often explain congressional intent, which Congress expects the agencies to
observe. The committee reports and explanatory statement may need to be read together to observe. The committee reports and explanatory statement may need to be read together to
capture all of the congressional intent for a given fiscal year. capture all of the congressional intent for a given fiscal year.
Table 4 includes conservation policy provisions in report language that direct specific funding includes conservation policy provisions in report language that direct specific funding
levellevels. Table 5 includes provisions that direct policy but not necessarily a specific amount of includes provisions that direct policy but not necessarily a specific amount of
funding. The tables are divided by general programs, accounts, or themes. The majority of funding. The tables are divided by general programs, accounts, or themes. The majority of
provisions are located under NRCS, but some are located under FSA or CCC within the reports. provisions are located under NRCS, but some are located under FSA or CCC within the reports.
Congressional Research Service 13 Agricultural Conservation: FY2022 Appropriations Table 4. Selected Conservation Policy Provisions Directing Funding Amounts in
FY2021 and FY2022 Appropriations Explanatory Statements
FY2021
FY2022
Explanatory Statement for Div. House-reported H.Rept. 117-82 Senate-reported S.Rept. 117-
A of P.L. 116-260
34 A of P.L. 116- Explanatory Statement for Div. A of P.L. 117- 260 103
Soil Surveys Program
Directs $79.4 mil ion of Directs $79.4 mil ion of
Similar to FY2021 but increases
Similar to FY2021 but increases
Conservation Operations (CO) to
amount to $84.4 mil ion of CO to
amount to $84.5 mil ion of CO to
the program.
the program.
Conservation Operations (CO) Similar to FY2021 but increases amount to $84.4 to the program. mil ion of CO to the program. the program.
Directs $1.0 mil ion of the Soil Directs $1.0 mil ion of the Soil
Surveys Program to the Similar to FY2021 but moved under Similar to FY2021 but moved under
No comparable provision.
Surveys Program to the Soil Health
CTA and increases to $2.0 mil ion.
Initiative linking soil health and
A separate entry directs $1.0
cover crop management.
mil ion for the Initiative with
additional requirements and
directions.
Directs $3.8 mil ion to maintain
No comparable provision.
No comparable provision.
relevant soil survey, CTA and does not Soil Health Initiative linking soil health and cover crop include cover crop language. management. Directs $3.8 mil ion to maintain relevant soil survey, Similar to FY2021 but increases amount to $5.0 mil ion including on including on
federal and tribal lands, and federal and tribal lands, and
encourages theencourages the and does not include direction on activities. Natural Resources Natural Resources
Conservation Service (NRCS) to Conservation Service (NRCS) to
study the impact of grazing, wildfire, study the impact of grazing, wildfire,
recreation, and invasive species on recreation, and invasive species on
soil.
Congressional Research Service

14

---

Agricultural Conservation: FY2022 Appropriations

FY2021
FY2022
Explanatory Statement for Div. House-reported H.Rept. 117-82 Senate-reported S.Rept. 117-
A of P.L. 116-260
34
Snow Survey and Water Forecasting Program
soil. Snow Survey and Water Forecasting Program Directs $9.5 mil ion of CO to the program. Same as FY2021. Plant Materials Centers Directs $9.5 mil ion of CO to the Directs $9.5 mil ion of CO to the
Similar to FY2021 but increasescenters.
Similar to FY2021 but increases Similar to FY2021 but increases
program.
amount to $14.5 mil ion.
amount to $16.5 mil ion.
Plant Materials Centers
Directs $9.5 mil ion of CO to the
Similar to FY2021 but increases
Same as FY2021.
centers.
amount to $11.5 mil ionamount to $10.4 mil ion. No comparable provision. Directs $1 mil ion of the Plant Materials Center funding to climate smart agriculture. .
Conservation Technical Assistance (CTA)
Directs $734.3 mil ion of CO to Directs $734.3 mil ion of CO to
Similar to FY2021 but increasesCTA.
Similar to FY2021 but increases Similar to FY2021 but increases
CTA.
amount to $759.8 amount to $759.8 mil ion.
amount to $784.8 mil ion. mil ion.
Directs $2.5 mil ion of CTA to the Directs $2.5 mil ion of CTA to the
No comparable provision.farmers.gov
No comparable provision. No comparable provision.
farmers.gov Customer Experience Customer Experience
Portal.
No comparable provision.
No comparable provision.
Directs $3.0 mil ion of CTA for soil
testing and remediation.
No comparable provision.
No comparable provision.
Directs $8.0 mil ion of CTA for
USDA Climate Hubs.
No comparable provisionPortal. No comparable provision. Directs $14.0 mil ion of CTA for Grazing Lands Conservation Initiative. .
No comparable provision. No comparable provision.
Directs $ Directs $123.0 mil ion of CTA for .0 mil ion of CTA for
climate smart agriculture. climate smart agriculture.
No comparable provision. No comparable provision.
No comparable provision.
Directs $20.0 mil ion of CTA for
Grazing Lands Conservation
Initiative. $16.0 mil ion of which is
required to be used for competitive
grants and $2.0 mil ion for a
cooperative agreement with the
National Grazing Lands CoalitionDirects $1 mil ion of CTA to the ongoing Soil Health Initiative. .
Feral Hog Fencing
No comparable provision No comparable provision
Directs $5.0 mil ion of CO for a Directs $5.0 mil ion of CO for a
Similar to House report but does
cost-share program cost-share program for the for the
not include a funding amount.
construction and repair of construction and repair of
perimeter fencing. perimeter fencing.
Healthy Forests Reserve Program (HFRP)
No comparable provision. No comparable provision.
Directs $ Directs $107.0 mil ion of CO for .0 mil ion of CO for
No comparable provision.
HFRP. HFRP.
Urban Agriculture and Innovative Production Program
Provides $7.0 mil ion $7.0 mil ion providedfor the program in bil text as in bil text as
a Directs $ Directs $98.5 mil ion of CO for the .5 mil ion of CO for the
Directs $8.0 mil ion of CO for the
a program. Included in general provision. Not included in general provision. Not included in
program. Included in bil text and
program. Included in report language. bil text and bil text and
report language.
report language. Supports increased report language.
staffing and grants to historically
underserved communities.
National Fish and Wildlife Foundation (NFWF) Program
No comparable provision.
No comparable provision.
Directs $15.0 mil ion of CO to
establish a NFWF Working Lands
Resilience Program.report language. Earmarks
Congressional Research Service Congressional Research Service

1514

---

Agricultural Conservation: FY2022 Appropriations

FY2021
FY2022
Explanatory Statement for Div. House-reported H.Rept. 117-82 Senate-reported S.Rept. 117-
A of P.L. 116-260
34
Earmarks
No comparable provision. A of P.L. 116- Explanatory Statement for Div. A of P.L. 117- 260 103
No comparable provision. No comparable provision.
Directs $19.6 mil ion of CO for Directs $19.6 mil ion of CO for
congressionally directed projects. congressionally directed projects.
No comparable provision. No comparable provision.
No comparable provision.
Directs $23.3 mil ion of WFPO for Directs $23.3 mil ion of WFPO for
congressionally directed projects. congressionally directed projects.
Source: Prepared byPrepared by CRS. For FY2021, see the explanatory statement for FY2021 Agriculture appropriations in CRS. For FY2021, see the explanatory statement for FY2021 Agriculture appropriations in
U.S. Congress, House Committee on Appropriations, U.S. Congress, House Committee on Appropriations, H.R. 133/P.L. 116-260, committee print, 117th Cong., 1st P.L. 116-260, committee print, 117th Cong., 1st
sess., March 2021, H.Cmte.Print 43-749, Book I (Washington, DC: GPO, 2021), at https://www.congress.gov/sess., March 2021, H.Cmte.Print 43-749, Book I (Washington, DC: GPO, 2021), at https://www.congress.gov/
committee-print/117th-congress/house-committee-print/43749; for FY2022, see committee-print/117th-congress/house-committee-print/43749; for FY2022, see H.Rept. 117-82 (accompanying
H.R. 4356) and S.Rept. 117-34 (accompanying S. 2599)“Explanatory Statement Submitted by Ms. DeLauro, Chair of the House Committee on Appropriations, Regarding the House Amendment to H.R. 2471, Consolidated Appropriations Act, 2022,” Congressional Record, vol. 168, part 42-Book III (March 9, 2022), p. H1713. .
Notes: These policy provisions clarify congressional intent for the specific fiscal year cited. The explanatory These policy provisions clarify congressional intent for the specific fiscal year cited. The explanatory
statement that accompanies the final FY2021 statement that accompanies the final FY2021 and FY2022 appropriation indicates that unless otherwise noted, appropriation indicates that unless otherwise noted, the House and Senate report languagethe House
report language (H.Rept. 116-446, accompanying H.R. 7610) carries the same weight as language in the carries the same weight as language in the
explanatory statement. Therefore, a notation of “no comparable provision” in the enacted column does not explanatory statement. Therefore, a notation of “no comparable provision” in the enacted column does not
vacate a described provision. Rather, the vacate a described provision. Rather, the FY2021 House reportHouse report, Senate report, and explanatory statement should be read and explanatory statement should be read
together to capture all of the congressional intent for the fiscal year. together to capture all of the congressional intent for the fiscal year. In FY2021 this includes H.Rept. 116-446, accompanying H.R. 7610. The Senate did not formally introduce an FY2021 appropriations bil . In FY2022 this includes H.Rept. 117-82 accompanying H.R. 4356 and S.Rept. 117-34 accompanying S. 2599. For additional information on the programs For additional information on the programs
identified in this table, see CRS Report R40763, identified in this table, see CRS Report R40763, Agricultural Conservation: A Guide to Programs. .
Table 5. Summary of Selected Conservation Policy Provisions in FY2021 and FY2022
Appropriations Explanatory Statements
( (E = FY2021 explanatory statement; HHouse = FY2022 House report = FY2022 House report; S and Senate = FY2022 Senate report) = FY2022 Senate report)
E H SProvision Location
Programs, Accounts, and Themes



Conservation Reserve Program (CRP)
✔
✔ Senate Encourages USDA to revise the draft programmatic environmental assessment for CRP to allow Encourages USDA to revise the draft programmatic environmental assessment for CRP to allow
dryland agriculture uses on Conservation Reserve Enhancement Program (CREP) acres. dryland agriculture uses on Conservation Reserve Enhancement Program (CREP) acres.
✔
✔ Senate Encourages USDA to enrol CRP acres in State Acres for Wildlife Enhancement (SAFE) practices. Encourages USDA to enrol CRP acres in State Acres for Wildlife Enhancement (SAFE) practices.


✔ Senate Directs the USDA to amend CRP policies and practices to permit current and future participants to Directs the USDA to amend CRP policies and practices to permit current and future participants to
plant but not harvest agricultural commodity crops as wildlife food plots on up to 10% of the plant but not harvest agricultural commodity crops as wildlife food plots on up to 10% of the
enrol ed land. enrol ed land.



Environmental Quality Incentives Program (EQIP)
✔
✔ Urges theHouse Directs Natural Resources Conservation Service (NRCS) to Natural Resources Conservation Service (NRCS) to develop EQIP guidance with input
from selected irrigation and land management organizations in the southwestern United States.

✔
Directs NRCS to use EQIP to support manure management, col aborate with other federal
agencies, and report to Congress.


✔ use EQIP to support manure management, col aborate with other federal agencies, and report to Congress. Senate Urges the NRCS to develop EQIP guidance with input from selected irrigation and land management organizations in the southwestern United States. Senate Encourages USDA to support implementation of energy efficiency projects under EQIP. Encourages USDA to support implementation of energy efficiency projects under EQIP.



Conservation Stewardship Program (CSP)

✔
House Encourages the creation of “climate change mitigation” bundles within CSP. Encourages the creation of “climate change mitigation” bundles within CSP.



Regional Conservation Partnership Program (RCPP)
✔ ✔ ✔ Congressional Research Service 15 Agricultural Conservation: FY2022 Appropriations Provision Location Programs, Accounts, and Themes House and Directs NRCS to maintain select critical conservation areas under RCPP, leverage resources to Directs NRCS to maintain select critical conservation areas under RCPP, leverage resources to
Senate achieve the goals of the 2015 Gulf Hypoxia Action Plan, and provide additional CTA funds to RCPP achieve the goals of the 2015 Gulf Hypoxia Action Plan, and provide additional CTA funds to RCPP
to address planning backlogs. House does not include reference to the 2015 Gulf Hypoxia Action to address planning backlogs. House does not include reference to the 2015 Gulf Hypoxia Action
Plan, while Senate does not include selected critical conservation areas. Plan, while Senate does not include selected critical conservation areas.



Conservation Compliance
Congressional Research Service

16

---

Agricultural Conservation: FY2022 Appropriations

E H S
Programs, Accounts, and Themes
✔
✔ Conservation Compliance Senate Encourages USDA to use a one-to-one acre ratio for wetlands mitigation requirements. Encourages USDA to use a one-to-one acre ratio for wetlands mitigation requirements.



Watershed and Flood Prevention Operations (WFPO)
✔

Provides direction on technical assistance for WFPO projects.


✔ Senate Directs NRCS to provide greater flexibility for WFPO technical assistance. Directs NRCS to provide greater flexibility for WFPO technical assistance.



Conservation Technical Assistance (CTA) and Conservation Practices

✔
House Encourages the development of conservation practices for small farmers related to “sustainable Encourages the development of conservation practices for small farmers related to “sustainable
farming methods.”farming methods.”

✔
House Directs NRCS to increase support for grazing lands technical service. Directs NRCS to increase support for grazing lands technical service.


✔ Senate Directs NRCS to report to Congress total technical assistance funding for the previous 3 years. Directs NRCS to report to Congress total technical assistance funding for the previous 3 years.


✔ Senate Urges NRCS to reevaluate Technical Service Providers matching requirements. Urges NRCS to reevaluate Technical Service Providers matching requirements.



Office of Urban Agriculture and Innovative Production

✔
House Supports the Community Compost and Food Waste Reduction Project and encourages USDA to Supports the Community Compost and Food Waste Reduction Project and encourages USDA to
promote composting and reduce food waste. promote composting and reduce food waste.

✔
House Encourages the Office of Urban Agriculture and Innovative Production to col aborate with other Encourages the Office of Urban Agriculture and Innovative Production to col aborate with other
agencies and develop farmers markets. agencies and develop farmers markets.

✔
House Encourages the Office of Urban Agriculture and Innovative Production to support vertical farming. Encourages the Office of Urban Agriculture and Innovative Production to support vertical farming.



Program Administration and Operations
✔

Directs NRCS to report to Congress on program duplication identified in Inspector General
reports.

✔
House Encourages NRCS to review and align conservation program delivery timelines with legislatively Encourages NRCS to review and align conservation program delivery timelines with legislatively
mandated timelines. mandated timelines.

✔
Requires House Requires NRCS to issue a report on the impact of customer data systems on staff efficiency. a report on the impact of customer data systems on staff efficiency.

✔
House Encourages NRCS to use the Conservation Agricultural Mentoring Program to enhance outreach. Encourages NRCS to use the Conservation Agricultural Mentoring Program to enhance outreach.

✔
House Encourages NRCS to continue working with Resource Conservation and Development Councils. Encourages NRCS to continue working with Resource Conservation and Development Councils.


✔ Senate Requires USDA to utilize youth or conservation corps for projects on public lands. Requires USDA to utilize youth or conservation corps for projects on public lands.


✔ Senate Directs NRCS to implement cooperative agreements with organizations that support the lesser-Directs NRCS to implement cooperative agreements with organizations that support the lesser-
prairie chicken and carbon sequestration programs. prairie chicken and carbon sequestration programs.



Soil Health
✔
✔ Encourages USDA to dedicate more CTA funding to measuring and testing carbon levels, healthy
soil planning, and soil carbon sequestration planning.
✔

Directs NRCS to analyze the feasibility of evaluating watershed and cropland projects under the
Conservation Effects Assessment Project (CEAP).

✔
Soil Health House Encourages the expansion of National Resources Inventory (NRI) to include soil sampling and Encourages the expansion of National Resources Inventory (NRI) to include soil sampling and
analysis. analysis.

✔
House Encourages the continued support of selected practices and soil health demonstration projects Encourages the continued support of selected practices and soil health demonstration projects
related to regenerative agriculture. related to regenerative agriculture.

✔
House Encourages soil carbon measuring, monitoring, and modeling be added to the Soil Surveys Program. Encourages soil carbon measuring, monitoring, and modeling be added to the Soil Surveys Program.



Water Quality and Quantity
✔
✔ Directs NRCS to give priority to areas with major drought response plans, agreements, or
programs designed to result in conservation of surface water or groundwater.
Congressional Research Service

17 Senate Encourages USDA to dedicate more CTA funding to measuring and testing carbon levels, healthy soil planning, and soil carbon sequestration planning. Water Quality and Quantity House Supports and directs funding to reduce nutrient loading that can contribute to Harmful Algal Blooms (HAB) growth. Congressional Research Service 16

---

Agricultural Conservation: FY2022 Appropriations

E H SProvision Location
Programs, Accounts, and Themes

✔
Supports and directs funding to reduce nutrient loading that can contribute to Harmful Algal
Blooms (HAB) growth.


✔ Senate Directs NRCS to give priority to areas with major drought response plans, agreements, or programs designed to result in conservation of surface water or groundwater. Senate Encourages NRCS to implement innovative drought resiliency and mitigation practices for irrigation. Encourages NRCS to implement innovative drought resiliency and mitigation practices for irrigation.



Wildlife

✔
House Supports the Sage Grouse Initiative. Supports the Sage Grouse Initiative.

✔
House Encourages the development of affordable, regional pol inator seed mixes. Encourages the development of affordable, regional pol inator seed mixes.


✔ Senate Directs NRCS to strengthen and expand the Working Lands for Wildlife program. Directs NRCS to strengthen and expand the Working Lands for Wildlife program.



Climate Change

✔
House Encourages NRCS to support and publicize the COMET-Farm Tool. Encourages NRCS to support and publicize the COMET-Farm Tool.



Geographically Specific Provisions

✔
House Encourages continuation of the Driftless Area Landscape Conservation Initiative in Minnesota, Iowa, Encourages continuation of the Driftless Area Landscape Conservation Initiative in Minnesota, Iowa,
Wisconsin, and Il inois. Wisconsin, and Il inois.

✔
House Encourages select flood mitigation measures in the Great Lakes region. Encourages select flood mitigation measures in the Great Lakes region.

✔
House Encourages NRCS to work with local, state, and federal agencies in the Western Lake Erie Basin. Encourages NRCS to work with local, state, and federal agencies in the Western Lake Erie Basin.

✔
House Urges USDA to participate in developing a Mississippi River restoration and resiliency strategy. Urges USDA to participate in developing a Mississippi River restoration and resiliency strategy.
Source: Compiled byCompiled by CRSCRS. For FY2021, see the explanatory statement for FY2021 agriculture appropriations in
H.Cmte.Print 43-749, Book I, at https://www.congress.gov/committee-print/117th-congress/house-committee-
print/43749; for FY2022, see from “Explanatory Statement Submitted by Ms. DeLauro, Chair of the House Committee on Appropriations, Regarding the House Amendment to H.R. 2471, Consolidated Appropriations Act, 2022,” Congressional Record, vol. 168, part 42-Book III (March 9, 2022), p. H1713; H.Rept. 117-82 (accompanying H.R. 4356) H.Rept. 117-82 (accompanying H.R. 4356); and S.Rept. 117-34 (accompanying S. and S.Rept. 117-34 (accompanying S.
2599).
Notes: A ✔ denotes the provision’s location. E = Explanatory statement for FY2021 agriculture appropriation;
H2599). Notes: House = H.Rept. 117-82; = H.Rept. 117-82; and SSenate = S.Rept. 117-34. These policy provisions clarify congressional intent for the specific = S.Rept. 117-34. These policy provisions clarify congressional intent for the specific
fiscal year cited. The explanatory statement accompanying the final fiscal year cited. The explanatory statement accompanying the final FY2021FY2022 appropriation appropriation indicates that unless indicates that unless
otherwise noted, the House report language otherwise noted, the House report language (H.Rept. 116-446, accompanying H.R. 7610) carriesand Senate report language carry the same the same
weight as language in the explanatory statement. Therefore, weight as language in the explanatory statement. Therefore, no ✔ in the enacted column (E) does not vacate a
described provision. Rather, the FY2021 House report and explanatory statement should be the FY2022 House report and Senate report is to be read together to read together to
capture all of the congressional intent for the fiscal year. capture all of the congressional intent for the fiscal year. The FY2022 enacted explanatory language did not included additional direction for NRCS and therefore is not included as a separate column in the table. For additional information on the programs identified in For additional information on the programs identified in
this table, see CRS Report R40763, this table, see CRS Report R40763, Agricultural Conservation: A Guide to Programs. . COMET-Farm refers to the refers to the
NRCS online carbon and greenhouse gas accounting tool, which can be accessed at http://comet-farm.com/NRCS online carbon and greenhouse gas accounting tool, which can be accessed at http://comet-farm.com/
Home. Home.

Author Information

Megan Stubbs Megan Stubbs

Specialist in Agricultural Conservation and Natural Specialist in Agricultural Conservation and Natural
Resources Policy Resources Policy

Congressional Research Service Congressional Research Service

1817

---

Agricultural Conservation: FY2022 Appropriations



Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other
than public understanding of information that has been provided by CRS to Members of Congress in than public understanding of information that has been provided by CRS to Members of Congress in
connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not
subject to copyright protection in the United States. Any CRS Report may be reproduced and distributed in subject to copyright protection in the United States. Any CRS Report may be reproduced and distributed in
its entirety without permission from CRS. However, as a CRS Report may include copyrighted images or its entirety without permission from CRS. However, as a CRS Report may include copyrighted images or
material from a third party, you may need to obtain the permission of the copyright holder if you wish to material from a third party, you may need to obtain the permission of the copyright holder if you wish to
copy or otherwise use copyrighted material. copy or otherwise use copyrighted material.

Congressional Research Service Congressional Research Service
R46971 R46971 · VERSION 1 · NEW
193 · UPDATED 18

---