What Is the Farm Bill?

Changes from February 22, 2023 to October 20, 2023

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What Is the Farm Bill?
~~February 22~~October 20, 2023 , 2023
The farm bill is an omnibus, multiyear law that governs an array of agricultural and food The farm bill is an omnibus, multiyear law that governs an array of agricultural and food
programs. Titles in the most recent farm bill encompassed farm commodity revenue supports, programs. Titles in the most recent farm bill encompassed farm commodity revenue supports,
Renée Johnson
agricultural conservation, trade and foreign food assistance, farm credit, research, rural agricultural conservation, trade and foreign food assistance, farm credit, research, rural
Specialist in Agricultural Specialist in Agricultural
development, forestry, bioenergy, horticulture, and domestic nutrition assistance. Typically development, forestry, bioenergy, horticulture, and domestic nutrition assistance. Typically
Policy Policy
renewed about every five or six years, the farm bill provides a predictable opportunity for renewed about every five or six years, the farm bill provides a predictable opportunity for

policymakers to comprehensively and periodically address agricultural and food issues. policymakers to comprehensively and periodically address agricultural and food issues.
Jim Monke
Specialist in Agricultural Specialist in Agricultural
The most recent farm bill—the Agriculture Improvement Act of 2018, P.L. 115-334—was The most recent farm bill—the Agriculture Improvement Act of 2018, P.L. 115-334—was
Policy Policy
enacted into law in December 2018 and expires in 2023. It succeeded the Agricultural Act of enacted into law in December 2018 and expires in 2023. It succeeded the Agricultural Act of

2014 (P.L. 113-79). Provisions in the 2018 farm bill modified the structure of farm commodity 2014 (P.L. 113-79). Provisions in the 2018 farm bill modified the structure of farm commodity
support, expanded crop insurance coverage, amended conservation programs, reauthorized and support, expanded crop insurance coverage, amended conservation programs, reauthorized and

revised nutrition assistance, and extended authority to appropriate funds for many U.S. revised nutrition assistance, and extended authority to appropriate funds for many U.S.
Department of Agriculture (USDA) discretionary programs through FY2023. Department of Agriculture (USDA) discretionary programs through FY2023.
At enactment in December 2018, the Congressional Budget At enactment in December 2018, the Congressional Budget
Farm Bill Titles with Mandatory Baseline, 10-Year
Office (CBO) estimated that the total cost of the mandatory Office (CBO) estimated that the total cost of the mandatory
Projected Outlays, FY2024-FY2033 ($ billions, $1,~~426~~463
programs in the farm bill would be $428 billion over its programs in the farm bill would be $428 billion over its
billion total)
five-year duration, FY2019-FY2023, about $1.8 billion five-year duration, FY2019-FY2023, about $1.8 billion
more than if the 2014 farm bill were extended. On a 10-more than if the 2014 farm bill were extended. On a 10-
year basis, the expected cost was $867 billion over year basis, the expected cost was $867 billion over
FY2019-FY2028, which was budget neutral compared to FY2019-FY2028, which was budget neutral compared to
extending the 2014 farm bill. Four titles accounted for 99% extending the 2014 farm bill. Four titles accounted for 99%
of anticipated farm bill mandatory outlays: Nutrition, Crop of anticipated farm bill mandatory outlays: Nutrition, Crop
Insurance, Commodity Programs, and Conservation (see Insurance, Commodity Programs, and Conservation (see
graph). Programs in all other farm bill titles graph). Programs in all other farm bill titles ~~account~~accounted for for
about 1% of mandatory outlays. Many programs are about 1% of mandatory outlays. Many programs are
authorized to receive discretionary (appropriated) funds. authorized to receive discretionary (appropriated) funds.
~~As of this writing, the official baseline to write a farm bill~~
~~in 2023 is not yet available. CBO is expected to update an~~
~~official scoring baseline for~~ CBO released the budget baseline for scoring bills during the 2023 legislative session in the 2023 legislative session in
~~spring 2023. Currently, the February 2023 CBO baseline is~~

~~the best indicator of future funding availability. Converting~~
Source: Figure created by CRS using CBO May 2022 Baseline
~~the February 2023 baseline into farm bill titles and adding~~
~~and amounts indicated in law for programs in other titles.~~
~~funding indicated in law for other farm bill programs, the~~
~~baseline for all farm bill titles is estimated at $709~~May 2023. Using this projection for the major farm bill programs and funding indicated in law for other farm bill programs that are not included in the annual projection, the current baseline for farm bill programs is estimated at $725 billion over 5 years Source: CRS using the CBO Baseline (May 2023) for the five ~~billion over 5 years~~ (FY2024-FY2028) and $1,(FY2024-FY2028) and $1,~~426~~463 billion over 10 years billion over 10 years
largest titles and amounts in law for programs in other titles. (FY2024-FY2033). (FY2024-FY2033).
The The ~~distribution~~allocation of spending across titles in the farm bill over time is not a zero-sum game. Legislative changes enacted in of spending across titles in the farm bill over time is not a zero-sum game. Legislative changes enacted in
each farm bill account for only a fraction of the observed change between farm bills. Every year, CBO re-estimates the each farm bill account for only a fraction of the observed change between farm bills. Every year, CBO re-estimates the
baseline to determine expected costs. Baseline projections can rise and fall over time based on changes in economic baseline to determine expected costs. Baseline projections can rise and fall over time based on changes in economic
conditions, without conditions, without action by Congress. For example, the relative proportions of farm bill spending have shifted over time. In the 2023 projection, the Nutrition title is 84% of the farm bill baseline compared with about 76% when the 2018 farm bill was enacted and 67% in the 2008 farm bill. Sharp increases in the Nutrition title reflect pandemic assistance and administrative adjustments made to SNAP benefit calculations. For non-nutrition farm bill programs, baseline amounts in 2023 are greater than when the 2018 farm bill was enacted ($240 billion over 10 years as of 2023 compared with $210 billion over 10 years in 2018)~~action by Congress. For example, SNAP outlays, which comprise most of the Nutrition title, increased~~
~~markedly through the recession that ended in 2009. Crop insurance outlays have increased steadily from policy changes,~~
~~while the farm commodity programs have risen and fallen counter-cyclically with market prices. Conservation program~~
~~outlays increased steadily since the 1990s but have leveled off in recent years~~. .
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What Is the Farm Bill?
The farm bill is an omnibus, multiyear law that governs an array of agricultural and food The farm bill is an omnibus, multiyear law that governs an array of agricultural and food
programs. Although agricultural policies are sometimes created and changed by freestanding programs. Although agricultural policies are sometimes created and changed by freestanding
legislation or as part of other major laws, the farm bill provides a predictable opportunity for legislation or as part of other major laws, the farm bill provides a predictable opportunity for
policymakers to comprehensively and periodically address agricultural and food issues. The farm policymakers to comprehensively and periodically address agricultural and food issues. The farm
bill is typically renewed about every five or six years.1 bill is typically renewed about every five or six years.1
Historically, farm bills focused on farm commodity program support for a handful of staple Historically, farm bills focused on farm commodity program support for a handful of staple
commodities—corn, soybeans, wheat, cotton, rice, peanuts, dairy, and sugar. Farm bills have commodities—corn, soybeans, wheat, cotton, rice, peanuts, dairy, and sugar. Farm bills have
become increasingly expansive in nature since 1973, when a nutrition title was first included. become increasingly expansive in nature since 1973, when a nutrition title was first included.
Other prominent additions since then include conservation, horticulture, and bioenergy.2 Other prominent additions since then include conservation, horticulture, and bioenergy.2
The omnibus nature of the farm bill can create broad coalitions of support among sometimes The omnibus nature of the farm bill can create broad coalitions of support among sometimes
conflicting interests for policies that, individually, might have greater difficulty negotiating the conflicting interests for policies that, individually, might have greater difficulty negotiating the
legislative process. This can lead to competition for funds provided in a farm bill. In recent years, legislative process. This can lead to competition for funds provided in a farm bill. In recent years,
more stakeholders have become involved in the debate on farm bills, including national farm more stakeholders have become involved in the debate on farm bills, including national farm
groups; commodity associations; state organizations; nutrition and public health officials; and groups; commodity associations; state organizations; nutrition and public health officials; and
advocacy groups representing conservation, recreation, rural development, faith-based interests, advocacy groups representing conservation, recreation, rural development, faith-based interests,
local food systems, and certified organic production. local food systems, and certified organic production.
The Agriculture Improvement Act of 2018 (P.L. 115-334, H.Rept. 115-1072), referred to here as The Agriculture Improvement Act of 2018 (P.L. 115-334, H.Rept. 115-1072), referred to here as
the “2018 farm bill,” the “2018 farm bill,” iswas the most recent omnibus farm bill. It was enacted in December 2018, with the most recent omnibus farm bill. It was enacted in December 2018, with
most provisions expiring in 2023. It succeeded the Agricultural Act of 2014 (P.L. 113-79; 2014 most provisions expiring in 2023. It succeeded the Agricultural Act of 2014 (P.L. 113-79; 2014
farm bill). The 2018 farm bill farm bill). The 2018 farm bill ~~contains~~contained 12 titles encompassing commodity revenue supports, farm 12 titles encompassing commodity revenue supports, farm
credit, trade, agricultural conservation, research, rural development, energy, and foreign and credit, trade, agricultural conservation, research, rural development, energy, and foreign and
domestic food programs, among other programs.3 (All titles in the 2018 farm bill are described in domestic food programs, among other programs.3 (All titles in the 2018 farm bill are described in
the the text box below and in the section below and in the section “Title-by-Title Summaries of the 2018 Farm Bill.”) )
Provisions in the 2018 farm bill modified the structure of farm commodity support, expanded Provisions in the 2018 farm bill modified the structure of farm commodity support, expanded
crop insurance coverage, amended conservation programs, reauthorized and revised nutrition crop insurance coverage, amended conservation programs, reauthorized and revised nutrition
assistance, and extended authority to appropriate funds for many U.S. Department of Agriculture assistance, and extended authority to appropriate funds for many U.S. Department of Agriculture
(USDA) discretionary programs through FY2023. (USDA) discretionary programs through FY2023.
Without reauthorization, some farm bill programs Without reauthorization, some farm bill programs ~~would~~ expire, such as the nutrition assistance expire, such as the nutrition assistance
programs and the farm commodity revenue programs. Procedurally, the potential for expiration programs and the farm commodity revenue programs. Procedurally, the potential for expiration
and the consequences of expired law may motivate legislative action.and the consequences of expired law may motivate legislative action.~~4 Functionally, without~~
~~reauthorization~~ Short-term extensions were enacted for farm bills in 2008 and 2013. Without reauthorization or extension, support for certain basic farm commodities would revert to long-abandoned—, support for certain basic farm commodities would revert to long-abandoned—
and potentially costly—supply-control and price regimes under permanent law dating back to the and potentially costly—supply-control and price regimes under permanent law dating back to the
1940s. Some programs 1940s. Some programs ~~would~~may cease to cease to operate~~operate unless reauthorized~~, while others might continue , while others might continue
to pay only existing obligations. Nutrition to pay only existing obligations. Nutrition ~~assistance~~ programs that require reauthorization and programs that require reauthorization and
are funded with mandatory spending can continue to operate via appropriations acts. Many are funded with mandatory spending can continue to operate via appropriations acts. Many

discretionary programs would lose their statutory authority to receive appropriations, though an annual appropriations act could provide funding. Other programs amended in the farm bill have permanent authority (e.g., crop insurance).4 1 See CRS Report R45210, 1 See CRS Report R45210, Farm Bills: Major Legislative Actions, 1965-2018. Since the 1930s, there have been 18 . Since the 1930s, there have been 18
farm bills (2018, 2014, 2008, 2002, 1996, 1990, 1985, 1981, 1977, 1973, 1970, 1965, 1956, 1954, 1949, 1948, 1938, farm bills (2018, 2014, 2008, 2002, 1996, 1990, 1985, 1981, 1977, 1973, 1970, 1965, 1956, 1954, 1949, 1948, 1938,
and 1933). Some researchers have identified other earlier enacted legislation considered to be “farm bill” legislation. and 1933). Some researchers have identified other earlier enacted legislation considered to be “farm bill” legislation.
2 See also CRS In Focus 2 See also CRS In Focus ~~IF11126,~~ ~~2018~~ IF12047, Farm Bill Primer: ~~Agriculture Improvement Act of 2018~~What Is the Farm Bill?. .
3 See CRS Report R45525, 3 See CRS Report R45525, The 2018 Farm Bill (P.L. 115-334): Summary and Side-by-Side Comparison. .
4 4 ~~For example, in 2012 Congress did not complete a new farm bill to replace the 2008 law, requiring a one-year~~
~~extension for both FY2013 and crop year 2013. In 2013, Congress passed bills that culminated in the 2014 farm bill.~~
~~Some programs, though, ceased to operate during the 2013 extension because they had no funding. For background, see~~
See CRS Report CRS Report ~~R41433,~~ ~~Programs Without a Budget Baseline at the End of the 2008~~ R47659, Expiration of the Farm Bill. .
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~~discretionary programs would lose their statutory authority to receive appropriations, though an~~
~~annual appropriations act could provide funding under an implicit authorization. Other programs~~
~~amended in the farm bill have permanent authority (e.g., crop insurance).5~~
~~The 2018~~ Titles of the Farm Bill: Functions and Major Issues~~, by Title~~
Title I, Commodity Programs: Provides farm payments when crop prices or revenues decline for major Provides farm payments when crop prices or revenues decline for major
commodity crops, including wheat, corn, soybeans, peanuts, rice, dairy, and sugar. Includes disaster programs to commodity crops, including wheat, corn, soybeans, peanuts, rice, dairy, and sugar. Includes disaster programs to
help livestock and tree fruit producers manage production losses due to natural disasters. Other support includes help livestock and tree fruit producers manage production losses due to natural disasters. Other support includes
margin coverage program for dairy and marketing quotas, minimum price guarantees, and import barriers for sugar. margin coverage program for dairy and marketing quotas, minimum price guarantees, and import barriers for sugar.
Title II, Conservation: Encourages environmental stewardship of farmlands and improved management on Encourages environmental stewardship of farmlands and improved management on
private land through land retirement, conservation easements, working lands assistance, and partnership private land through land retirement, conservation easements, working lands assistance, and partnership
opportunities. opportunities.
Title III, Trade: Supports U.S. agricultural export programs and international food assistance programs. Major Supports U.S. agricultural export programs and international food assistance programs. Major
programs include those that support agricultural trade promotion and facilitation and international food aid. programs include those that support agricultural trade promotion and facilitation and international food aid.
Title IV, Nutrition: Provides nutrition assistance for low-income households through programs including the Provides nutrition assistance for low-income households through programs including the
Supplemental Nutrition Assistance Program (SNAP, formerly known as food stamps) and The Emergency Food Supplemental Nutrition Assistance Program (SNAP, formerly known as food stamps) and The Emergency Food
Assistance Program (TEFAP). Assistance Program (TEFAP).
Title V, Credit: Offers direct government loans and guarantees to producers to buy land and operate farms and Offers direct government loans and guarantees to producers to buy land and operate farms and
ranches. Eligibility rules and policies prioritize and increase assistance for beginning and socially disadvantaged ranches. Eligibility rules and policies prioritize and increase assistance for beginning and socially disadvantaged
producers.producers.
Title VI, Rural Development: Supports rural housing, community facilities, business, and utility programs Supports rural housing, community facilities, business, and utility programs
through grants, loans and loan guarantees, and rural business and community development programs. Establishes through grants, loans and loan guarantees, and rural business and community development programs. Establishes
planning, feasibility assessments, and coordination with other local, state, and federal programs. Programs include planning, feasibility assessments, and coordination with other local, state, and federal programs. Programs include
grants and loans for infrastructure, economic development, broadband, and telecommunications. grants and loans for infrastructure, economic development, broadband, and telecommunications.
Title VII, Research, Extension, and Related Matters: Supports a wide range of agricultural research and Supports a wide range of agricultural research and
extension programs that expand academic knowledge about agriculture and food and help farmers and ranchers extension programs that expand academic knowledge about agriculture and food and help farmers and ranchers
become more efficient, innovative, and productive. become more efficient, innovative, and productive.
Title VIII, Forestry: Supports forestry management programs run by USDA’s Forest Service through the Supports forestry management programs run by USDA’s Forest Service through the
management of public and private forest land through research, financial and technical assistance, and policy management of public and private forest land through research, financial and technical assistance, and policy
amendments. amendments.
Title IX, Energy: Encourages the development of farm and community renewable energy systems through grants, Encourages the development of farm and community renewable energy systems through grants,
loan guarantees, and feedstock procurement initiatives. Provisions cover the production, marketing, and processing loan guarantees, and feedstock procurement initiatives. Provisions cover the production, marketing, and processing
of biofuels and biofuel feedstocks, and research, education, and demonstration programs. of biofuels and biofuel feedstocks, and research, education, and demonstration programs.
Title X, Horticulture: Supports specialty crops, including fruits, vegetables, tree nuts, and nursery products, Supports specialty crops, including fruits, vegetables, tree nuts, and nursery products,
through market promotion, plant pest and disease prevention, and research. Provides assistance to support USDA-through market promotion, plant pest and disease prevention, and research. Provides assistance to support USDA-
certified organic agricultural production and locally produced foods—both for crops and animal products. certified organic agricultural production and locally produced foods—both for crops and animal products.
Authorizes a regulatory framework for the cultivation of hemp. Authorizes a regulatory framework for the cultivation of hemp.
Title XI, Crop Insurance: Enhances risk management through the permanently authorized Federal Crop Enhances risk management through the permanently authorized Federal Crop
Insurance Program, which offers subsidized insurance policies to farmers to protect against losses in yield, crop Insurance Program, which offers subsidized insurance policies to farmers to protect against losses in yield, crop
revenue, or whole farm revenue. revenue, or whole farm revenue.
Title XII, Miscellaneous: Covers other programs and assistance, including livestock and poultry disease Covers other programs and assistance, including livestock and poultry disease
preparedness and animal health. Includes programs for beginning farmers and ranchers and limited-resource and preparedness and animal health. Includes programs for beginning farmers and ranchers and limited-resource and
socially disadvantaged farmers, among other miscellaneous provisions.socially disadvantaged farmers, among other miscellaneous provisions.
Figure 1 provides a timeline of selected important dates for U.S. farm bill policy and other provides a timeline of selected important dates for U.S. farm bill policy and other
related laws. In many respects, agricultural policy in the United States began with the creation of related laws. In many respects, agricultural policy in the United States began with the creation of
USDA, homesteading, and subsequent creation of the land-grant universities in the 1800s. Many USDA, homesteading, and subsequent creation of the land-grant universities in the 1800s. Many
stand-alone agricultural laws were passed during the early 1900s to help farmers with credit stand-alone agricultural laws were passed during the early 1900s to help farmers with credit
availability and marketing practices and to protect consumers via meat inspection. availability and marketing practices and to protect consumers via meat inspection.

~~5 See CRS Report R45341, Expiration of the 2014 Farm Bill.~~
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Figure 1. Selected Dates for U.S. Farm Bill Policy and Selected Related Laws

Source: Figure created by the Congressional Research Service (CRS). Figure created by the Congressional Research Service (CRS).
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What Is the Farm Bill?

The economic depression and dust bowl in the 1930s prompted the first “farm bill” in 1933, with The economic depression and dust bowl in the 1930s prompted the first “farm bill” in 1933, with
subsidies and production controls to raise farm incomes and encourage conservation. Commodity subsidies and production controls to raise farm incomes and encourage conservation. Commodity
subsidies evolved through the 1960s, when Great Society reforms drew attention to food subsidies evolved through the 1960s, when Great Society reforms drew attention to food
assistance. The 1973 farm bill was the first “omnibus” farm bill. It included not only farm assistance. The 1973 farm bill was the first “omnibus” farm bill. It included not only farm
supports but also food stamp reauthorization to provide nutrition assistance for needy individuals. supports but also food stamp reauthorization to provide nutrition assistance for needy individuals.
Subsequent farm bills expanded in scope, adding titles for formerly stand-alone laws such as Subsequent farm bills expanded in scope, adding titles for formerly stand-alone laws such as
trade, credit, and crop insurance. New conservation laws were added in the 1985 farm bill, trade, credit, and crop insurance. New conservation laws were added in the 1985 farm bill,
organic agriculture in the 1990 farm bill, research programs in the 1996 farm bill, bioenergy in organic agriculture in the 1990 farm bill, research programs in the 1996 farm bill, bioenergy in
the 2002 farm bill, and horticulture and local food systems in the 2008 farm bill. the 2002 farm bill, and horticulture and local food systems in the 2008 farm bill.
What Is the Estimated Cost of the Farm Bill?
The farm bill authorizes programs in two spending categories: mandatory and discretionary. The farm bill authorizes programs in two spending categories: mandatory and discretionary.
• Mandatory spending programs generally operate as entitlements. Mandatory Mandatory spending programs generally operate as entitlements. Mandatory
spending is authorized and paid for when a law is enacted under budget spending is authorized and paid for when a law is enacted under budget
enforcement rules that use multiyear federal budget estimates.enforcement rules that use multiyear federal budget estimates.65
• Discretionary spending programs are authorized for their scope but are not Discretionary spending programs are authorized for their scope but are not
funded in the farm bill. They are subject to annual appropriations and may not funded in the farm bill. They are subject to annual appropriations and may not
receive any funding or may receive less than the farm bill-authorized amount. receive any funding or may receive less than the farm bill-authorized amount.
Mandatory spending programs usually dominate the farm bill debate and its budget. The farm bill Mandatory spending programs usually dominate the farm bill debate and its budget. The farm bill
“pays” for mandatory spending in addition to determining policy. These procedures follow a “pays” for mandatory spending in addition to determining policy. These procedures follow a
framework of laws for budget enforcement that use projected “baseline” and “scores” from the framework of laws for budget enforcement that use projected “baseline” and “scores” from the
Congressional Budget Office (CBO). Congressional Budget Office (CBO).
The CBO The CBO baseline represents an availability of funding; it is a projection at a particular point in represents an availability of funding; it is a projection at a particular point in
time of what future federal spending on mandatory programs would be assuming current law time of what future federal spending on mandatory programs would be assuming current law
continues. This baseline is the continues. This baseline is the benchmark against which proposed changes in law are measured. against which proposed changes in law are measured.
Having a baseline essentially gives programs built-in future funding if policymakers decide that Having a baseline essentially gives programs built-in future funding if policymakers decide that
the programs are to continue. Straightforward reauthorization would have zero budget effect. the programs are to continue. Straightforward reauthorization would have zero budget effect.
The impact ( The impact (score) of a proposed bill that alters mandatory spending is measured in relation to the ) of a proposed bill that alters mandatory spending is measured in relation to the
baseline. Changes that increase spending relative to the baseline have a baseline. Changes that increase spending relative to the baseline have a positive score; those that score; those that
decrease spending relative to the baseline have a decrease spending relative to the baseline have a negative score; and score; and budget neutral refers to refers to
having a zero score. Increases in overall cost beyond the baseline may be subject to budget having a zero score. Increases in overall cost beyond the baseline may be subject to budget
constraints, such as pay-as-you-go (PAYGO) requirements.constraints, such as pay-as-you-go (PAYGO) requirements.76 Reductions from the baseline may be Reductions from the baseline may be
used to offset other provisions in a bill that have a positive score or to reduce the federal deficit. used to offset other provisions in a bill that have a positive score or to reduce the federal deficit.
The annual budget resolution determines whether a farm bill will be held budget neutral, must The annual budget resolution determines whether a farm bill will be held budget neutral, must
reduce spending, or may increase spending.reduce spending, or may increase spending.7
What Was the Expected Cost of the 2018 Farm Bill at Enactment?
At enactment in December 2018, CBO estimated that the total cost of the mandatory programs in At enactment in December 2018, CBO estimated that the total cost of the mandatory programs in
the farm bill would be $428 billion over its five-year duration, FY2019-FY2023, about $1.8 the farm bill would be $428 billion over its five-year duration, FY2019-FY2023, about $1.8

6 5 See CRS Report R45425, See CRS Report R45425, Budget Issues That Shaped the 2018 Farm Bill. .
76 See CRS Report R41157, See CRS Report R41157, The Statutory Pay-As-You-Go Act of 2010: Summary and Legislative History. .
7 CRS In Focus IF12233, Farm Bill Primer: Budget Dynamics. Congressional Research Service Congressional Research Service

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billion more than if the 2014 farm bill were extended. On a 10-year basis, the expected cost was billion more than if the 2014 farm bill were extended. On a 10-year basis, the expected cost was
$867 billion through FY2028, which was budget neutral$867 billion through FY2028, which was budget neutral (Table 1).8 8
Four titles accounted for 99% of anticipated farm bill mandatory outlays: Nutrition, Crop Four titles accounted for 99% of anticipated farm bill mandatory outlays: Nutrition, Crop
Insurance, Farm Commodities, and Conservation. The Nutrition title comprised 76% of Insurance, Farm Commodities, and Conservation. The Nutrition title comprised 76% of
mandatory outlays, mostly for the Supplemental Nutrition Assistance Program (SNAP, formerly mandatory outlays, mostly for the Supplemental Nutrition Assistance Program (SNAP, formerly
known as food stamps). The remaining 24% covered mostly federal crop insurance and known as food stamps). The remaining 24% covered mostly federal crop insurance and
commodity support (16%) and conservation (7%). Programs in other titles accounted for about commodity support (16%) and conservation (7%). Programs in other titles accounted for about
1% of mandatory outlays. However, many programs were authorized to receive discretionary 1% of mandatory outlays. However, many programs were authorized to receive discretionary
(appropriated) funds. (appropriated) funds.
Since enactment of the 2018 farm bill, CBO has updated its projections of government spending Since enactment of the 2018 farm bill, CBO has updated its projections of government spending
given new information about the economy and program participation.9 Generally, such changes given new information about the economy and program participation.9 Generally, such changes
are due solely to changing economic conditions. are due solely to changing economic conditions.
Table 1. Budget for the 2018 Farm Bill
(millions of dollars, 5- and 10-year totals, mandatory spending) (millions of dollars, 5- and 10-year totals, mandatory spending)

Five years (FY2019-FY2023)
10 years (FY2019-FY2028)
CBO
Score of
Projected
CBO
Score of
Projected
baseline
2018 farm
outlays at
baseline
2018 farm
outlays at
Farm bill titles
April 2018
bill
enactment
April 2018
bill
enactment
Commodities Commodities
31,340 31,340
+101 +101
31,440
61,151 61,151
+263 +263
61,414
Conservation Conservation
28,715 28,715
+555 +555
29,270
59,754 59,754
-6 -6
59,748
Trade Trade
1,809 1,809
+235 +235
2,044
3,624 3,624
+470 +470
4,094
Nutrition Nutrition
325,922 325,922
+98 +98
326,020
663,828 663,828
+0 +0
663,828
Credit Credit
-2,205 -2,205
+0 +0
-2,205
-4,558 -4,558
+0 +0
-4,558
Rural Development Rural Development
98 98
-530 -530
-432
168 168
-2,530 -2,530
-2,362
Research Research
329 329
+365 +365
694
604 604
+615 +615
1,219
Forestry Forestry
5 5
+0 +0
5
10 10
+0 +0
10
Energy Energy
362 362
+109 +109
471
612 612
+125 +125
737
Horticulture Horticulture
772 772
+250 +250
1,022
1,547 1,547
+500 +500
2,047
Crop Insurance Crop Insurance
38,057 38,057
-47 -47
38,010
78,037 78,037
-104 -104
77,933
Miscellaneous Miscellaneous
1,259 1,259
+685 +685
1,944
2,423 2,423
+738 +738
3,161
Subtotal
426,462 426,462
+1,820 +1,820
428,282
867,200 867,200
+70 +70
867,270
- Increase revenue - Increase revenue
- -
+35 +35
35 35
- -
+70 +70
70 70
Total
426,462 426,462
+1,785 +1,785
428,247
867,200 867,200
+0 +0
867,200
Source: CRS from the Congressional Budget Office (CBO) Baseline by Title (unpublished; April 2018); and CRS from the Congressional Budget Office (CBO) Baseline by Title (unpublished; April 2018); and
CBO cost estimate of the conference agreement for H.R. 2, December 11, 2018. CBO cost estimate of the conference agreement for H.R. 2, December 11, 2018.
Notes: Baseline for the Credit title is negative because of receipts to the Farm Credit System Insurance Fund. Baseline for the Credit title is negative because of receipts to the Farm Credit System Insurance Fund.
Baseline for the Rural Development “cushion of credit” is accounted for outside of the farm bil . Baseline for the Rural Development “cushion of credit” is accounted for outside of the farm bil .

8 Congressional Budget Office (CBO) cost estimate of H.R. 2, the Agriculture Improvement Act of 2018, December 11, 8 Congressional Budget Office (CBO) cost estimate of H.R. 2, the Agriculture Improvement Act of 2018, December 11,
2018. 2018.
9 For information on CBO baseline projections, see CBO, “Details About Baseline Projections for Selected Programs,” 9 For information on CBO baseline projections, see CBO, “Details About Baseline Projections for Selected Programs,”
USDA Mandatory Farm Programs data, at https://www.cbo.gov/data/baseline-projections-selected-programs#25. USDA Mandatory Farm Programs data, at https://www.cbo.gov/data/baseline-projections-selected-programs#25.
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What Is the Budget for the Next Farm Bill?
~~As of this writing, the~~CBO released an official official ~~CBO baseline to write the next farm bill is not yet available. An~~
~~update of the official CBO “scoring baseline” for~~budget baseline for scoring bills during the 2023 legislative session the 2023 legislative session ~~is expected in~~
~~spring 2023. The baseline would cover the 10-year period FY2024-FY2033.10 Currently, the~~
~~February 2023 CBO baseline is the best indicator of future funding availability.~~
~~Converting the February 2023 baseline into farm bill titles and adding funding indicated in law~~
~~for other farm bill programs, the~~ in May 2023. Using this projection for the major farm bill programs, and funding indicated in law for other farm bill programs that are not included in the CBO annual projection, the current baseline for farm bill programs is estimated at $baseline for farm bill programs is estimated at $~~709~~725 billion over billion over
5 years (FY2024-FY2028) and 5 years (FY2024-FY2028) and $1,463~~$1,426~~ billion over 10 years (FY2024-FY2033 billion over 10 years (FY2024-FY2033~~; Figure 2). An~~
~~updated CBO baseline in spring 2023 may update these amounts.~~).10
Figure 2. Farm Bill Titles with Mandatory Baseline
10-year projected outlays, FY2024-FY2033, billions of dollars, $1, 10-year projected outlays, FY2024-FY2033, billions of dollars, $1,~~426~~463 billion total billion total

Sources: ~~Figure created~~Created by CRS using by CRS using ~~CBO February 2023 Baseline~~ Congressional Budget Office (CBO) May 2023 Baseline for the five largest titles and amounts indicated in law for programs and amounts indicated in law for programs
in other titles; see also CRS In Focus IF12233, Farm Bill Primer: Budget Dynamicsin other titles. .
The relative proportions of farm bill spending have The relative proportions of farm bill spending have ~~changed~~shifted over time. over time. ~~Using the February~~ In the 2023 2023
projection, the Nutrition title is projection, the Nutrition title is 8584% of the farm bill baseline, compared with about 76% when the % of the farm bill baseline, compared with about 76% when the
2018 farm bill was enacted. 2018 farm bill was enacted. ~~Increases in the Nutrition title since 2018 reflect~~The increase in the 10-year baseline for the Nutrition title since 2018 is 84%, reflecting consequences of the consequences of the
Coronavirus Disease 2019 (COVID-19) pandemic, inflation, and administrative adjustments Coronavirus Disease 2019 (COVID-19) pandemic, inflation, and administrative adjustments
in the Thrift Food Plan pursuant to the 2018 farm bill. For the non-nutrition agriculture programs in the farm bill, current pursuant to the 2018 farm bill. For the non-nutrition agriculture programs in the farm bill, current
economic projections are that program outlays would be $economic projections are that program outlays would be $~~221~~240 billion over the next 10 years billion over the next 10 years
(Figure 3), , ~~5% greater than~~$30 billion or 14% greater than the 10-year projection at enactment in 2018. ~~at enactment in 2018.~~

10 Farm bills have 5-year and 10-year budget projections according to federal budgeting practices. 10 Farm bills have 5-year and 10-year budget projections according to federal budgeting practices.
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Figure 3. Baseline for Agriculture Programs in the Farm Bill
10-year projected outlays (excluding the Nutrition title), FY2024-FY2033, millions of dollars 10-year projected outlays (excluding the Nutrition title), FY2024-FY2033, millions of dollars

Source: ~~Figure created by~~ Created by CRS using the CBO CRS using the CBO ~~February~~May 2023 baseline 2023 baseline for the four largest titles and amounts indicated in law for and amounts indicated in law for
programs in other titles. programs in other titles.
What Is the Effect of Supplemental Payments?
Supplemental spending (i.e., spending for agriculture and nutrition programs that is not provided Supplemental spending (i.e., spending for agriculture and nutrition programs that is not provided
for in the farm bill) is not part of the baseline but may be important in considering the next farm for in the farm bill) is not part of the baseline but may be important in considering the next farm
bill because of the magnitude of supplemental spending in recent years. bill because of the magnitude of supplemental spending in recent years. ~~Since 2018, Congress~~
~~authorized more than $15 billion of ad hoc disaster assistance for agricultural losses.11 From 2018~~
~~to 2020, USDA initiated over $23 billion in payments to farms~~In FY2019 and FY2020, the Trump Administration increased outlays by over $25 billion to producers affected by affected by retaliatory tariffs. Since FY2020, Congress and the White House have provided supplemental pandemic assistance of over $30 billion to farms~~retaliatory tariffs. In~~
~~response to the COVID-19 pandemic, USDA initiated and Congress enacted collectively over $31~~
~~billion of supplemental assistance to farms through USDA~~ and over $60 billion for nutrition and over $60 billion for nutrition
~~programs~~assistance. The Infrastructure Investment and Jobs Act of 2021 (P.L. 117-58) provided $2.9 billion . The Infrastructure Investment and Jobs Act of 2021 (P.L. 117-58) provided $2.9 billion
for USDA broadband and watershed programs. The Inflation Reduction Act of 2022 (P.L. 117-for USDA broadband and watershed programs. The Inflation Reduction Act of 2022 (P.L. 117-
169) added over $17 billion in outlays through FY2031 for four programs in the farm bill’s 169) added over $17 billion in outlays through FY2031 for four programs in the farm bill’s
~~Conservation title and one program in the Energy title.12 The supplemental funding is not regular~~
~~farm bill funding. Congress may wish to consider the effectiveness of farm bill programs in light~~
~~of this accumulated additional funding.~~

~~11 For more background, see CRS In Focus IF12101, Farm Bill Primer: Disaster Assistance.~~
~~12 For more background, see CRS Insight IN11978,~~ ~~Inflation Reduction Act: Agricultural Conservation and Credit,~~
~~Renewable Energy, and Forestry~~.
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Conservation title Congressional Research Service 7 link to page 11 link to page 12 What Is the Farm Bill? and one program in the Energy title (Figure 4).11 Since 2018, Congress has authorized more than $15 billion of ad hoc disaster assistance for agricultural losses.12 The supplemental funding is not regular farm bill funding. Congress may wish to consider the effectiveness of farm bill programs in light of this accumulated additional funding. Figure 4. Conservation Title Baseline in the Farm Bill and Conservation Funding in
the Inflation Reduction Act

Source: ~~Figure created~~Created by CRS using the by CRS using the ~~February~~May 2023 CBO baseline. Which Farm Bill Programs Do Not Have a Continuing Baseline? Twenty-one ~~2023 CBO baseline and score of the Inflation Reduction Act~~
~~of 2022 (P.L. 117-169).~~
~~Which Programs Have Expiring Baseline~~
~~The 2018 farm bill added several new programs that received a permanent budget baseline.~~
~~Another 19~~ programs, shown i programs, shown in Figure 5, received mandatory funding in the 2018 farm bill but received mandatory funding in the 2018 farm bill but
do not have a baseline beyond FY2023. As Congress balances budget considerations, providing do not have a baseline beyond FY2023. As Congress balances budget considerations, providing
mandatory funding for programs without baseline would require budgetary offsets. These mandatory funding for programs without baseline would require budgetary offsets. These 1921
programs received $programs received $~~876~~906 million of mandatory funding during the five years of the 2018 farm bill million of mandatory funding during the five years of the 2018 farm bill
(out of total mandatory spending of $428 billion across all farm bill programs). Programs that (out of total mandatory spending of $428 billion across all farm bill programs). Programs that
receive mandatory funding do not require annual discretionary appropriations. receive mandatory funding do not require annual discretionary appropriations.
From a budgetary perspective, many programs are assumed to continue beyond the end of their From a budgetary perspective, many programs are assumed to continue beyond the end of their
authorization. That is, they have a continuing authorization. That is, they have a continuing baseline beyond the end of a farm bill, which gives beyond the end of a farm bill, which gives
them built-in future funding if policymakers decide that the programs are to continue, or, if not, them built-in future funding if policymakers decide that the programs are to continue, or, if not,
the baseline can be reallocated or used as an offset for deficit reduction. Reauthorizing the baseline can be reallocated or used as an offset for deficit reduction. Reauthorizing farm bill
programs without baseline would have a positive score (cost) and would likely need to be offset would have a positive score (cost) and would likely need to be offset
by reductions elsewhere. by reductions elsewhere.
For more background, see CRS In Focus IF12115, For more background, see CRS In Focus IF12115, Farm Bill Primer: Programs Without Baseline
Beyond FY2023. 11 For more background, see CRS Insight IN11978, Inflation Reduction Act: Agricultural Conservation and Credit, Renewable Energy, and Forestry, and CRS Report R47478, Agricultural Conservation and the Next Farm Bill. 12 For more background, see CRS In Focus IF12101, Farm Bill Primer: Disaster Assistance. .
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Figure 5. 2018 Farm Bill Programs Without a Budget Baseline After FY2023, by Title

Source: ~~Figure created by~~ Created by CRS using CRS Report R45425, CRS using CRS Report R45425, Budget Issues That Shaped the 2018 Farm Bill, Table 3, , Table 3,
table notes table notes b and and c. .
Notes: Programs in P.L. 115-334 are identified as having mandatory budgetary outlays during FY2019-FY2023 Programs in P.L. 115-334 are identified as having mandatory budgetary outlays during FY2019-FY2023
but no budget authority beyond FY2023. See CBO, but no budget authority beyond FY2023. See CBO, H.R. 2, Agriculture Improvement Act of 2018, December 11, December 11,
2018, at https://www.cbo.gov/publication/54880. 2018, at https://www.cbo.gov/publication/54880.
Title-by-Title Summaries of the 2018 Farm Bill
Following are summaries of the major provisions of each titleFollowing are summaries of the major provisions of each title of, as organized in the 2018 farm bill. For more the 2018 farm bill. For more
detailed informationdetailed information about the development of provisions in the 2018 farm bill, see CRS Report R45525, , see CRS Report R45525, The 2018 Farm Bill (P.L. 115-334): Summary and
Side-by-Side Comparison. .
For a For a contemporary discussion of title-by-title policy options proposed by stakeholders for Congress to consider discussion of title-by-title policy options proposed by stakeholders for Congress to consider
in the next farm bill, see CRS Report R47057, in the next farm bill, see CRS Report R47057, Preparing for the Next Farm Bill, and CRS Report R47313, Next Farm Bill Primer Series: A Guide to Agriculture and Food Programs in the 2018 Farm Bill. .
Title I: Commodity Programs13
The Commodity Programs title authorizes support programs for dairy, sugar, and covered The Commodity Programs title authorizes support programs for dairy, sugar, and covered
commodities—including major grain, oilseed, and pulse crops—as well as agricultural disaster commodities—including major grain, oilseed, and pulse crops—as well as agricultural disaster
assistance. The 2018 farm bill assistance. The 2018 farm bill ~~extends~~extended authority for most current commodity programs but with authority for most current commodity programs but with
some modifications. Major field-crop programs some modifications. Major field-crop programs ~~include~~included Price Loss Coverage (PLC), 13 See CRS In Focus IF11163, 2018 Farm Bill Primer: The Farm Safety Net; CRS In Focus IF11164, 2018 Farm Bill Primer: Title I Commodity Programs; and CRS In Focus IF11188, 2018 Farm Bill Primer: Dairy Programs. Congressional Research Service 9 What Is the Farm Bill? Agricultural Risk Coverage (ARC), and Marketing Assistance Loans (MAL). The dairy program protected a portion of the margin between milk and feed prices. The sugar program provided a combination of price supports, limits on imports, and processor/refiner marketing allotments. Four disaster assistance programs focused primarily on livestock and tree crops. Title I also included several ~~Price Loss Coverage (PLC), Agricultural~~
~~Risk Coverage (ARC), and Marketing Assistance Loans (MAL). The new dairy program protects~~
~~a portion of the margin between milk and feed prices. The sugar program provides a combination~~
~~of price supports, limits on imports, and processor/refiner marketing allotments. Four disaster~~
~~assistance programs focus primarily on livestock and tree crops. Title I also includes several~~

~~13 See CRS In Focus IF11163, 2018 Farm Bill Primer: The Farm Safety Net; CRS In Focus IF11164,~~ ~~2018 Farm Bill~~
~~Primer: Title I Commodity Programs; and CRS In Focus IF11188, 2018 Farm Bill Primer: Dairy Programs.~~
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administrative provisions that set payment limits, an adjusted gross income (AGI) threshold, and administrative provisions that set payment limits, an adjusted gross income (AGI) threshold, and
other details for payment attribution and eligibility. other details for payment attribution and eligibility.
The 2018 farm bill The 2018 farm bill ~~provides~~provided producers the flexibility of switching between ARC and PLC producers the flexibility of switching between ARC and PLC
coverage under certain conditions. Producers coverage under certain conditions. Producers ~~can~~could update their program yields for the PLC, and an update their program yields for the PLC, and an
escalator provision was added that could potentially raise a covered commodity’s effective escalator provision was added that could potentially raise a covered commodity’s effective
reference price. For ARC, data from the Risk Management Agency reference price. For ARC, data from the Risk Management Agency ~~become~~became the primary source the primary source
for county average yields, which for county average yields, which iswas intended to avoid cross-county disparities in payments. For intended to avoid cross-county disparities in payments. For
the marketing assistance loan program, rates the marketing assistance loan program, rates ~~are~~ increased for several crops, including barley, increased for several crops, including barley,
corn, grain sorghum, oats, extra-long-staple cotton, rice, soybeans, dry peas, lentils, and small and corn, grain sorghum, oats, extra-long-staple cotton, rice, soybeans, dry peas, lentils, and small and
large chickpeas. Regarding payment limitations, the definition of large chickpeas. Regarding payment limitations, the definition of family farm is expanded to expanded to
include first cousins, nieces, and nephews, thus increasing eligibility. include first cousins, nieces, and nephews, thus increasing eligibility.
For dairy, a new Dairy Margin Coverage (DMC) program For dairy, a new Dairy Margin Coverage (DMC) program ~~adds~~added higher levels of margin coverage, higher levels of margin coverage,
~~provides~~provided for lower producer-paid premium rates for 5 million pounds or less of milk production, for lower producer-paid premium rates for 5 million pounds or less of milk production,
~~and allows~~and allowed producers to cover a larger percentage of milk production compared with the 2014 producers to cover a larger percentage of milk production compared with the 2014
Margin Protection Program. Under DMC, premiums were designed to incentivize higher levels of Margin Protection Program. Under DMC, premiums were designed to incentivize higher levels of
coverage. Producers coverage. Producers ~~may~~could participate in both margin coverage and the Livestock Gross Margin- participate in both margin coverage and the Livestock Gross Margin-
Dairy insurance program that Dairy insurance program that ~~insures~~insured the margin between feed costs and a designated milk price. the margin between feed costs and a designated milk price.
For assistance following a disaster, the 2018 farm bill For assistance following a disaster, the 2018 farm bill ~~amends~~amended payments for livestock and tree payments for livestock and tree
losses and losses and ~~removes~~removed select payment limitations. It also select payment limitations. It also ~~expands~~expanded eligibility for the Noninsured Crop eligibility for the Noninsured Crop
Disaster Assistance Program (NAP) and Disaster Assistance Program (NAP) and ~~amends~~amended payment calculations and service fees. payment calculations and service fees.
Title II: Conservation14
The Conservation title provides assistance to agricultural producers by addressing environmental The Conservation title provides assistance to agricultural producers by addressing environmental
resource concerns on private land through land retirement, conservation easements, working resource concerns on private land through land retirement, conservation easements, working
lands assistance, and partnership opportunities. The 2018 farm bill lands assistance, and partnership opportunities. The 2018 farm bill ~~reauthorizes and amends~~ reauthorized and amended many many
of the largest conservation programs and of the largest conservation programs and ~~creates~~created a number of new pilot programs, carve-outs, and a number of new pilot programs, carve-outs, and
initiatives. initiatives.
The two largest working lands programs—Environmental Quality Incentives Program (EQIP) and The two largest working lands programs—Environmental Quality Incentives Program (EQIP) and
Conservation Stewardship Program (CSP)—were reauthorized and amended. Enrollment for CSP Conservation Stewardship Program (CSP)—were reauthorized and amended. Enrollment for CSP
iswas reduced and funds reduced and funds ~~are~~were shifted, in part, to EQIP and other farm bill conservation programs. shifted, in part, to EQIP and other farm bill conservation programs.
EQIP EQIP iswas expanded to irrigation and drainage entities, and additional funding carve-outs and pilot expanded to irrigation and drainage entities, and additional funding carve-outs and pilot
projects projects ~~are~~were authorized. The largest land retirement program—the Conservation Reserve Program authorized. The largest land retirement program—the Conservation Reserve Program
(CRP)—(CRP)—iswas reauthorized and expanded by incrementally increasing the enrollment limit from 24 reauthorized and expanded by incrementally increasing the enrollment limit from 24
million acres in FY2019 to 27 million acres by FY2023. CRP payments to participants million acres in FY2019 to 27 million acres by FY2023. CRP payments to participants ~~are~~
were reduced, and additional subprograms reduced, and additional subprograms ~~are~~were authorized. The Regional Conservation Partnership authorized. The Regional Conservation Partnership
Program (RCPP) Program (RCPP) iswas redefined as a stand-alone program with separate contracts and an expanded redefined as a stand-alone program with separate contracts and an expanded
scope of eligible projects. Agricultural land easements in the Agricultural Conservation Easement scope of eligible projects. Agricultural land easements in the Agricultural Conservation Easement
Program (ACEP) Program (ACEP) ~~are~~were amended to provide additional amended to provide additional flexibility to eligible entities. 14 See CRS Report R45698, Agricultural Conservation in the 2018 Farm Bill; or CRS In Focus IF11199, 2018 Farm Bill Primer: Title II Conservation Programs. Congressional Research Service 10 What Is the Farm Bill? Title III: Trade15 The Trade title addresses U.S. agricultural export programs and U.S. international food assistance programs. Major programs support agricultural trade promotion and facilitation, such as the ~~flexibility to eligible entities.~~
~~Title III: Trade15~~
~~The Trade title addresses U.S. agricultural export programs and U.S. international food assistance~~
~~programs. Major programs support agricultural trade promotion and facilitation, such as the~~

~~14 See CRS Report R45698, Agricultural Conservation in the 2018 Farm Bill; or CRS In Focus IF11199,~~ ~~2018 Farm~~
~~Bill Primer: Title II Conservation Programs~~.
~~15 See CRS In Focus IF11223, 2018 Farm Bill Primer: Agricultural Trade and Food Assistance.~~
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Market Access Program, and the primary U.S. international food assistance program, Food for Market Access Program, and the primary U.S. international food assistance program, Food for
Peace (FFP) Title II. Peace (FFP) Title II.
The 2018 farm bill The 2018 farm bill ~~reauthorizes~~reauthorized existing U.S. export promotion programs and existing U.S. export promotion programs and ~~consolidates~~consolidated four four
programs into a new Agricultural Trade Promotion and Facilitation Program (ATPFT) that programs into a new Agricultural Trade Promotion and Facilitation Program (ATPFT) that
~~establishes~~established permanent mandatory funding. It also permanent mandatory funding. It also ~~establishes~~established a Priority Trade Fund within ATPFT. a Priority Trade Fund within ATPFT.
The enacted law also The enacted law also ~~reauthorizes~~reauthorized direct credits or export credit guarantees for the promotion of direct credits or export credit guarantees for the promotion of
agricultural exports to emerging markets. agricultural exports to emerging markets.
The 2018 farm bill The 2018 farm bill ~~reauthorizes~~reauthorized all international food assistance programs as well as certain all international food assistance programs as well as certain
operational details such as prepositioning of agricultural commodities and micronutrient operational details such as prepositioning of agricultural commodities and micronutrient
fortification. It also fortification. It also ~~adds~~added a provision requiring that food vouchers, cash transfers, and local and a provision requiring that food vouchers, cash transfers, and local and
regional procurement of non-U.S. foods avoid market disruption in the recipient country. The regional procurement of non-U.S. foods avoid market disruption in the recipient country. The
2018 farm bill 2018 farm bill ~~amends~~amended FFP Title II by eliminating the requirement to FFP Title II by eliminating the requirement to monetize—that is, sell on —that is, sell on
local markets to fund development projects—at least 15% of FFP Title II commodities. It also local markets to fund development projects—at least 15% of FFP Title II commodities. It also
~~increases~~increased the minimum level of FFP Title II funds allocated for nonemergency assistance. The the minimum level of FFP Title II funds allocated for nonemergency assistance. The
2018 farm bill also 2018 farm bill also ~~reauthorizes~~reauthorized and/or and/or ~~amends~~amended other international food assistance programs, other international food assistance programs,
including the McGovern-Dole program. including the McGovern-Dole program.
Title IV: Nutrition16
The Nutrition title provides food assistance for low-income households through programs The Nutrition title provides food assistance for low-income households through programs
including SNAP and The Emergency Food Assistance Program (TEFAP). The 2018 farm bill including SNAP and The Emergency Food Assistance Program (TEFAP). The 2018 farm bill
~~amends~~amended various aspects of the programs and various aspects of the programs and ~~reauthorizes~~reauthorized them through FY2023. Rules regarding them through FY2023. Rules regarding
SNAP eligibility and benefit calculation SNAP eligibility and benefit calculation ~~are~~were largely maintained, including general work largely maintained, including general work
requirements and the time limit for nondisabled adults without dependents. The law requirements and the time limit for nondisabled adults without dependents. The law ~~requires~~
required some changes to the calculation for homeless households’ benefits as well as certain aspects of some changes to the calculation for homeless households’ benefits as well as certain aspects of
benefit calculation. Among other program integrity policies, the 2018 farm bill benefit calculation. Among other program integrity policies, the 2018 farm bill ~~establishes a~~
established a National Accuracy Clearinghouse to identify concurrent enrollment in multiple states. National Accuracy Clearinghouse to identify concurrent enrollment in multiple states.
For the SNAP Electronic Benefit Transfer (EBT) system, the 2018 farm bill For the SNAP Electronic Benefit Transfer (EBT) system, the 2018 farm bill ~~places~~placed limits on fees, limits on fees,
~~shortens~~shortened the time frame for unused benefits, and the time frame for unused benefits, and ~~changes~~changed the authorization requirements for some the authorization requirements for some
farmers’ market operators. It farmers’ market operators. It ~~requires~~required nationwide online acceptance of SNAP benefits and nationwide online acceptance of SNAP benefits and
~~authorizes~~authorized a pilot project about recipients’ use of mobile technology to redeem SNAP benefits. a pilot project about recipients’ use of mobile technology to redeem SNAP benefits.
The 2018 farm bill further The 2018 farm bill further ~~reauthorizes, renames, and expands~~reauthorized, renamed, and expanded the Food Insecurity Nutrition the Food Insecurity Nutrition
Incentive (FINI, now the Gus Schumacher Nutrition Incentive Program), a grant program for Incentive (FINI, now the Gus Schumacher Nutrition Incentive Program), a grant program for
projects that incentivize SNAP and other low-income participants’ purchase of fruits and projects that incentivize SNAP and other low-income participants’ purchase of fruits and
vegetables. The 2018 farm bill also vegetables. The 2018 farm bill also ~~continues~~continued funding for the Senior Farmers’ Market Nutrition funding for the Senior Farmers’ Market Nutrition
Program and Program and ~~reauthorizes but reduces~~reauthorized but reduced funding for the Community Food Projects grants. funding for the Community Food Projects grants.
It also It also ~~reauthorizes and revises~~reauthorized and revised food distribution programs. Supporting emergency feeding food distribution programs. Supporting emergency feeding
organizations, the bill organizations, the bill ~~reauthorizes~~reauthorized TEFAP and TEFAP and ~~authorizes~~authorized new projects to facilitate the donation new projects to facilitate the donation
of raw/unprocessed commodities. The Food Distribution Program on Indian Reservations now of raw/unprocessed commodities. The Food Distribution Program on Indian Reservations now
15 See CRS In Focus IF11223, 2018 Farm Bill Primer: Agricultural Trade and Food Assistance. 16 See CRS In Focus IF11087, 2018 Farm Bill Primer: SNAP and Nutrition Title Programs. Congressional Research Service 11 What Is the Farm Bill? requires the federal government to pay at least 80% of administrative costs and includes a requires the federal government to pay at least 80% of administrative costs and includes a
demonstration project for tribes to purchase their own commodities. demonstration project for tribes to purchase their own commodities.
Title V: Credit
The Credit title offers direct government loans to farmers/ranchers and guarantees on private The Credit title offers direct government loans to farmers/ranchers and guarantees on private
lenders’ loans. For the USDA farm loan programs, the lenders’ loans. For the USDA farm loan programs, the ~~enacted law adds~~2018 farm bill added criteria that may be criteria that may be used ~~used~~

~~16 See CRS In Focus IF11087, 2018 Farm Bill Primer: SNAP and Nutrition Title Programs.~~
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to reduce a three-year farming experience requirement. It to reduce a three-year farming experience requirement. It ~~raises~~raised the maximum loan size for the maximum loan size for
guaranteed loans by about 25%. It further guaranteed loans by about 25%. It further ~~doubles~~doubled the limit for direct farm ownership loans and the limit for direct farm ownership loans and
~~increases~~increased the direct operating loan limit by one-third. Beginning and socially disadvantaged the direct operating loan limit by one-third. Beginning and socially disadvantaged
farmers farmers ~~may benefit~~benefited from a higher guarantee percentage on loans. For the Federal Agricultural from a higher guarantee percentage on loans. For the Federal Agricultural
Mortgage Corporation (known as FarmerMac), the 2018 farm bill Mortgage Corporation (known as FarmerMac), the 2018 farm bill ~~increases~~increased an acreage exception an acreage exception
to remain a qualified loan. For the Farm Credit System Insurance Corporation, the farm bill to remain a qualified loan. For the Farm Credit System Insurance Corporation, the farm bill
~~provides~~provided greater statutory guidance about its conservatorship and receivership authorities, which greater statutory guidance about its conservatorship and receivership authorities, which
are largely modeled after the Federal Deposit Insurance Corporation. It also are largely modeled after the Federal Deposit Insurance Corporation. It also ~~reauthorizes~~reauthorized the State the State
Agricultural Loan Mediation Program and Agricultural Loan Mediation Program and ~~expands~~expanded the range of eligible issues. the range of eligible issues.
Title VI: Rural Development17
The Rural Development title supports rural business and community development. The 2018 farm The Rural Development title supports rural business and community development. The 2018 farm
bill bill ~~makes~~made changes to existing USDA programs. It temporarily changes to existing USDA programs. It temporarily ~~prioritizes~~prioritized public health public health
emergencies and substance use disorder, including in the Distance Learning and Telemedicine emergencies and substance use disorder, including in the Distance Learning and Telemedicine
Program, the Community Facilities Program, and the Rural Health and Safety Education Program, the Community Facilities Program, and the Rural Health and Safety Education
Program. For rural broadband deployment, the 2018 farm bill Program. For rural broadband deployment, the 2018 farm bill ~~authorizes~~authorized the Rural Broadband the Rural Broadband
Access Program to provide grants in addition to direct and guaranteed loans and Access Program to provide grants in addition to direct and guaranteed loans and ~~increases~~increased the the
minimum acceptable speed levels for broadband service. The farm bill minimum acceptable speed levels for broadband service. The farm bill ~~reauthorizes~~reauthorized the Rural the Rural
Energy Savings Program and Energy Savings Program and ~~amends~~amended the program to allow off-grid and energy storage systems. the program to allow off-grid and energy storage systems. It amendedIt
~~amends~~ the definition of the definition of rural to exclude individuals incarcerated on a “long-term or regional to exclude individuals incarcerated on a “long-term or regional
basis” and basis” and ~~excludes~~excluded the first 1,500 individuals who reside in housing located on military bases. the first 1,500 individuals who reside in housing located on military bases.
The 2018 farm bill further The 2018 farm bill further ~~provides~~provided that areas defined as rural between 1990 and 2020 may that areas defined as rural between 1990 and 2020 may
remain so until the 2030 census. It remain so until the 2030 census. It ~~amends~~amended the Cushion of Credit Payments Program for rural the Cushion of Credit Payments Program for rural
utilities to cease new deposits and to modify the interest rate. utilities to cease new deposits and to modify the interest rate.
Title VII: Research, Extension, and Related Matters18
The Research title supports agricultural research at the federal level and provides support for The Research title supports agricultural research at the federal level and provides support for
cooperative research, extension, and postsecondary agricultural education programs. The 2018 cooperative research, extension, and postsecondary agricultural education programs. The 2018
farm bill farm bill ~~reauthorizes~~reauthorized several existing programs and several existing programs and ~~establishes~~established new programs and initiatives. new programs and initiatives.
The 2018 farm bill also The 2018 farm bill also ~~amends and reauthorizes~~amended and reauthorized funding for the competitively awarded funding for the competitively awarded
Agriculture and Food Research Initiative (AFRI), Organic Agriculture Research and Extension Agriculture and Food Research Initiative (AFRI), Organic Agriculture Research and Extension
Initiative (OREI), and Specialty Crop Research Initiative (SCRI). It Initiative (OREI), and Specialty Crop Research Initiative (SCRI). It ~~reauthorizes~~reauthorized the Expanded the Expanded
Food and Nutrition Education Program (EFNEP), which distributes funds to eligible applicants Food and Nutrition Education Program (EFNEP), which distributes funds to eligible applicants
on a formula basis. It on a formula basis. It ~~enhances~~enhanced mandatory funding and mandatory funding and ~~requires~~required a strategic plan for the a strategic plan for the
Foundation for Food and Agriculture Research (FFAR). Foundation for Food and Agriculture Research (FFAR).
Among new programs and initiatives, the 2018 farm bill Among new programs and initiatives, the 2018 farm bill ~~establishes~~established the Agriculture Advanced the Agriculture Advanced
Research and Development Authority Pilot, research Centers of Excellence at 1890 Institutions Research and Development Authority Pilot, research Centers of Excellence at 1890 Institutions
~~(historically black land-grant colleges and universities), and competitive grants programs to~~
~~benefit tribal students and those at 1890 Institutions. It also establishes new competitive research~~
~~and extension grants for hemp research and indoor and urban agriculture.~~

17 See CRS In Focus IF11225, 17 See CRS In Focus IF11225, 2018 Farm Bill Primer: Rural Development Programs. .
18 See CRS In Focus IF11319, 18 See CRS In Focus IF11319, 2018 Farm Bill Primer: Agricultural Research and Extension. .
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(historically black land-grant colleges and universities), and competitive grants programs to benefit tribal students and those at 1890 Institutions. It also established new competitive research and extension grants for hemp research and indoor and urban agriculture. Title VIII: Forestry19
The Forestry title supports forestry management programs run by USDA’s Forest Service. The The Forestry title supports forestry management programs run by USDA’s Forest Service. The
2018 farm bill 2018 farm bill ~~continues~~continued provisions related to forestry research and provisions related to forestry research and ~~provides~~provided financial and financial and
technical assistance to nonfederal forest landowners. It also technical assistance to nonfederal forest landowners. It also ~~includes~~included several provisions several provisions
addressing management of the National Forest System lands managed by the Forest Service and addressing management of the National Forest System lands managed by the Forest Service and
the public lands managed by the Bureau of Land Management in the Department of the Interior.20 the public lands managed by the Bureau of Land Management in the Department of the Interior.20
It It ~~reauthorizes~~reauthorized the Healthy Forests Reserve Program, Rural Revitalization Technology, National the Healthy Forests Reserve Program, Rural Revitalization Technology, National
Forest Foundation, and funding for implementing statewide forest resource assessments. It Forest Foundation, and funding for implementing statewide forest resource assessments. It
~~authorizes~~authorized financial assistance for large restoration projects that cross landownership boundaries. financial assistance for large restoration projects that cross landownership boundaries.
The The ~~enacted law also addresses~~farm bill also addressed issues related to the accumulation of biomass and the associated issues related to the accumulation of biomass and the associated
risk for uncharacteristic wildfires. risk for uncharacteristic wildfires.
The 2018 farm bill The 2018 farm bill ~~changes~~changed how the Forest Service and the Bureau of Land Management comply how the Forest Service and the Bureau of Land Management comply
with the National Environmental Policy Act for management of sage grouse and mule deer with the National Environmental Policy Act for management of sage grouse and mule deer
habitat. It also habitat. It also ~~changes~~changed the Forest Service’s authority to designate insect and disease treatment the Forest Service’s authority to designate insect and disease treatment
areas and procedures intended to expedite the environmental analysis. It areas and procedures intended to expedite the environmental analysis. It ~~establishes~~established two two
watershed protection programs on National Forest System lands and watershed protection programs on National Forest System lands and ~~authorizes~~authorized acceptance of acceptance of
cash or in-kind donations for those programs. cash or in-kind donations for those programs.
Title IX: Energy21
The Energy title encourages the development of biofuels and farm and community renewable The Energy title encourages the development of biofuels and farm and community renewable
energy systems through grants, loan guarantees, and a feedstock procurement initiative. It also energy systems through grants, loan guarantees, and a feedstock procurement initiative. It also
supports increases in energy efficiency as well as the development of biobased products. The supports increases in energy efficiency as well as the development of biobased products. The
2018 farm bill 2018 farm bill ~~extends~~extended eight programs and one initiative through FY2023, eight programs and one initiative through FY2023, ~~repeals~~repealed one program one program
and one initiative (the Repowering Assistance Program and the Rural Energy Self-Sufficiency and one initiative (the Repowering Assistance Program and the Rural Energy Self-Sufficiency
Initiative), and Initiative), and ~~establishes~~established one new grant program (the Carbon Utilization and Biogas Education one new grant program (the Carbon Utilization and Biogas Education
Program). It Program). It ~~amends~~amended the Biomass Crop Assistance Program to include algae. It also the Biomass Crop Assistance Program to include algae. It also ~~modifies~~modified the the
definitions of definitions of biobased product (to include renewable chemicals), (to include renewable chemicals), biorefinery (to include the (to include the
conversion of an intermediate ingredient or feedstock), and conversion of an intermediate ingredient or feedstock), and renewable energy systems (to include (to include
ancillary infrastructure such as a storage system). Compared to previous farm bills, the 2018 farm ancillary infrastructure such as a storage system). Compared to previous farm bills, the 2018 farm
bill bill ~~provides~~provided less mandatory funding for existing USDA energy programs. less mandatory funding for existing USDA energy programs.
Title X: Horticulture22
The Horticulture title supports The Horticulture title supports specialty crops—as defined in statute, covering fruits, vegetables, —as defined in statute, covering fruits, vegetables,
tree nuts, and nursery products—through a range of initiatives, including market promotion, plant tree nuts, and nursery products—through a range of initiatives, including market promotion, plant
pest and disease prevention, and public research. The title also provides support to certified pest and disease prevention, and public research. The title also provides support to certified
organic agricultural production and locally produced foods. organic agricultural production and locally produced foods.
~~The 2018 farm bill reauthorizes many of these provisions, including block grants to states,~~
~~support for farmers markets, data and information collection, education on food safety and~~
~~biotechnology, and organic certification. Provisions affecting the specialty crop, certified organic,~~

19 See CRS In Focus IF10681, 19 See CRS In Focus IF10681, Farm Bill Primer: Forestry Title. .
20 See CRS Report R45696, 20 See CRS Report R45696, Forest Management Provisions Enacted in the 115th Congress. .
21 See CRS In Focus IF10639, 21 See CRS In Focus IF10639, Farm Bill Primer: Energy Title. .
22 See CRS In Focus IF11317, 22 See CRS In Focus IF11317, 2018 Farm Bill Primer: Specialty Crops and Organic Agriculture. .
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The 2018 farm bill reauthorized many of these provisions, including block grants to states, support for farmers markets, data and information collection, education on food safety and biotechnology, and organic certification. Provisions affecting the specialty crop, certified organic, and local foods sectors were~~and local foods sectors are~~ not limited to the Horticulture title (Title X) but not limited to the Horticulture title (Title X) but ~~are~~were contained within contained within
several other titles, including the Research, Nutrition, and Trade titles. several other titles, including the Research, Nutrition, and Trade titles.
The 2018 farm bill The 2018 farm bill ~~expands and adds~~expanded and added funding for farmers markets and local food promotion funding for farmers markets and local food promotion
programs by combining existing programs to create a new Local Agriculture Market Program. programs by combining existing programs to create a new Local Agriculture Market Program.
Other provisions supporting local and urban agriculture development Other provisions supporting local and urban agriculture development ~~are~~were housed in the housed in the
Miscellaneous, Research, Conservation, and Crop Insurance titles.23 The 2018 farm bill Miscellaneous, Research, Conservation, and Crop Insurance titles.23 The 2018 farm bill ~~makes~~made
changes to USDA’s National Organic Program (NOP) and related programs, addressing concerns changes to USDA’s National Organic Program (NOP) and related programs, addressing concerns
about organic import integrity by including provisions that strengthen the tracking, data about organic import integrity by including provisions that strengthen the tracking, data
collection, and investigation of organic product imports. It also collection, and investigation of organic product imports. It also ~~expands~~expanded mandatory funding for mandatory funding for
the National Organic Certification Cost Share Program and the National Organic Certification Cost Share Program and ~~expands~~expanded support for technology support for technology
upgrades to improve tracking and verification of organic imports. upgrades to improve tracking and verification of organic imports.
The 2018 farm bill The 2018 farm bill ~~authorizes~~authorized establishing a regulatory framework for the cultivation of establishing a regulatory framework for the cultivation of hemp (as (as
defined in statute) and defined in statute) and ~~creates~~created a new regulatory program for hemp production under USDA’s a new regulatory program for hemp production under USDA’s
oversight. Related provisions oversight. Related provisions ~~expand~~expanded the statutory definition of the statutory definition of hemp and and ~~expand~~expanded eligibility to eligibility to
produce hemp to a broader set of producers and groups, including tribes and territories. produce hemp to a broader set of producers and groups, including tribes and territories.
Provisions in other titles further Provisions in other titles further ~~expand~~expanded support for hemp, including making hemp eligible for support for hemp, including making hemp eligible for
federal crop insurance and certain USDA research programs, as well as excluding hemp from the federal crop insurance and certain USDA research programs, as well as excluding hemp from the
statutory definition of statutory definition of marijuana under the Controlled Substances Act.24 under the Controlled Substances Act.24
Title XI: Crop Insurance
The Crop Insurance title modifies the permanently authorized Federal Crop Insurance Act. The The Crop Insurance title modifies the permanently authorized Federal Crop Insurance Act. The
federal crop insurance program offers subsidized policies to farmers to protect against losses in federal crop insurance program offers subsidized policies to farmers to protect against losses in
yield, crop revenue, or whole farm revenue. yield, crop revenue, or whole farm revenue.
The 2018 farm bill The 2018 farm bill ~~makes~~made several modifications. It several modifications. It ~~expands~~expanded coverage by authorizing catastrophic coverage by authorizing catastrophic
policies for forage and grazing crops and grasses. It also policies for forage and grazing crops and grasses. It also ~~allows~~allowed producers to purchase separate producers to purchase separate
crop insurance policies for crops that can be both grazed and mechanically harvested on the same crop insurance policies for crops that can be both grazed and mechanically harvested on the same
acres and to receive independent indemnities for each intended use. For crop insurance research acres and to receive independent indemnities for each intended use. For crop insurance research
and development, the farm bill and development, the farm bill ~~redefines~~redefined beginning farmer or rancher as an individual having as an individual having
actively operated and managed a farm or ranch for less than 10 years. This redefinition actively operated and managed a farm or ranch for less than 10 years. This redefinition ~~makes~~made
these individuals eligible for federal subsidy benefits of whole-farm insurance plans. these individuals eligible for federal subsidy benefits of whole-farm insurance plans.
The The ~~law also allows~~farm bill also allowed waivers of certain viability and marketability requirements for developing a waivers of certain viability and marketability requirements for developing a
policy or pilot program for the production of hemp. It further policy or pilot program for the production of hemp. It further ~~adds~~added hemp (as defined in statute) as (as defined in statute) as
an eligible crop for federal crop insurance and to the limited list of crops that cover post-harvest an eligible crop for federal crop insurance and to the limited list of crops that cover post-harvest
losses. losses.
Title XII: Miscellaneous
The Miscellaneous title The Miscellaneous title ~~covers~~of the 2018 farm bill covered a wide array of issues across six subtitles, including livestock, a wide array of issues across six subtitles, including livestock,
agriculture and food defense, historically underserved producers, Department of Agriculture agriculture and food defense, historically underserved producers, Department of Agriculture
Reorganization Act of 1994 Amendments, and other general provisions. Reorganization Act of 1994 Amendments, and other general provisions.
~~The livestock provisions establish the National Animal Disease Preparedness Response Program~~
~~and the National Animal Vaccine and Veterinary Countermeasures Bank. Other livestock~~
~~provisions authorize appropriations for the Sheep Production and Marketing Grant Program; add~~

23 See CRS In Focus IF11252, 23 See CRS In Focus IF11252, 2018 Farm Bill Primer: Support for Local Food Systems; and CRS In Focus IF11210, ; and CRS In Focus IF11210,
2018 Farm Bill Primer: Support for Urban Agriculture. .
24 See CRS In Focus IF11088, 24 See CRS In Focus IF11088, 2018 Farm Bill Primer: Hemp Cultivation and Processing. .
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The livestock provisions established the National Animal Disease Preparedness Response Program and the National Animal Vaccine and Veterinary Countermeasures Bank. Other livestock provisions authorized appropriations for the Sheep Production and Marketing Grant Program; added llamas, alpacas, live fish, and crawfish to the list of covered animals under the Emergency llamas, alpacas, live fish, and crawfish to the list of covered animals under the Emergency
Livestock Feed Assistance Act; and Livestock Feed Assistance Act; and ~~establish~~established regional cattle and carcass grading centers. Other regional cattle and carcass grading centers. Other
animal-related provisions animal-related provisions ~~ban~~banned the slaughter of dogs and cats, the slaughter of dogs and cats, ~~impose~~imposed a ban on animal fighting in a ban on animal fighting in
U.S. territories, and U.S. territories, and ~~require~~required a report on the importation of dogs. a report on the importation of dogs.
The Miscellaneous title The Miscellaneous title ~~includes~~included a number of other provisions covering a wide range of policy a number of other provisions covering a wide range of policy
issues. Among these, it issues. Among these, it ~~directs~~directed USDA to restore certain exemptions for inspection and weighing USDA to restore certain exemptions for inspection and weighing
services that were included in the United States Grain Standards Act but were rescinded by services that were included in the United States Grain Standards Act but were rescinded by
USDA when the act was reauthorized in 2015. It USDA when the act was reauthorized in 2015. It ~~amends~~amended the Controlled Substances Act to the Controlled Substances Act to
exclude exclude hemp (as defined in statute) from the statutory definition of (as defined in statute) from the statutory definition of marijuana. The enacted law . The enacted law
also also ~~establishes~~established the Farming Opportunities Training and Outreach program by combining and the Farming Opportunities Training and Outreach program by combining and
expanding expanding ~~existing~~ programs for beginning, limited resource, and socially disadvantaged farmers programs for beginning, limited resource, and socially disadvantaged farmers
and ranchers.25 It further and ranchers.25 It further ~~extends~~extended outreach and technical assistance programs for socially outreach and technical assistance programs for socially
disadvantaged farmers and ranchers and disadvantaged farmers and ranchers and ~~adds~~added military veteran farmers and ranchers as a military veteran farmers and ranchers as a
qualifying group. It also qualifying group. It also ~~creates~~created a military veterans agricultural liaison within USDA to advocate a military veterans agricultural liaison within USDA to advocate
for and provide information to veterans and for and provide information to veterans and ~~establishes~~established an Office of Tribal Relations to coordinate an Office of Tribal Relations to coordinate
USDA activities with Native American tribes.26 The USDA activities with Native American tribes.26 The ~~enacted law requires~~farm bill required USDA to conduct USDA to conduct
additional planning and monitoring of plant disease and pest concerns and additional planning and monitoring of plant disease and pest concerns and ~~reauthorizes~~ reauthorized policies policies
supporting citrus growers and cotton and wool apparel manufacturers. supporting citrus growers and cotton and wool apparel manufacturers.

25 See CRS In Focus IF11227, 25 See CRS In Focus IF11227, 2018 Farm Bill Primer: Beginning Farmers and Ranchers. .
26 See CRS In Focus IF11093, 26 See CRS In Focus IF11093, 2018 Farm Bill Primer: Veteran Farmers and Ranchers. .
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Author Information

Renée Johnson Renée Johnson
Jim Monke Jim Monke
Specialist in Agricultural Policy Specialist in Agricultural Policy
Specialist in Agricultural Policy Specialist in Agricultural Policy

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
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RS22131 RS22131 · VERSION 7476 · UPDATED
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