Emergency Funding for Agriculture: A Brief
History of Supplemental Appropriations,
FY1989-FY2009
Ralph M. Chite
Section Research Manager
January 20, 2010
Congressional Research Service
7-5700
www.crs.gov
RL31095
CRS Report for Congress
P
repared for Members and Committees of Congress
Emergency Funding for Agriculture: A Brief History of Supplemental Appropriations
Summary
From FY1989 through FY2009, 39 appropriations, authorization, or farm disaster acts added
approximately $68.7 billion in supplemental funding for U.S. Department of Agriculture (USDA)
programs (excluding the Forest Service, which is funded annually under the Interior
appropriations bill). Approximately $50.2 billion, or just under three-fourths of the total amount,
was provided within the last 10 years.
Since FY1989, a large portion ($44.4 billion) of the total supplemental funding has been paid
directly to farmers, primarily through two mechanisms: “market loss payments” ($21.4 billion, all
from FY1999 to FY2001) to compensate for low farm commodity prices, and crop disaster
payments ($22.34 billion) paid to any producer who experienced a major crop loss caused by a
natural disaster. The remaining $24.3 billion has funded a wide array of other USDA programs,
including livestock feed assistance programs, farm conservation programs, specialty crop
assistance, farm loans, and non-farm USDA programs such as overseas food aid, and rural
development assistance.
In recent years, virtually all of the supplemental spending has been provided under an emergency
designation from Congress and the Administration, meaning that the new spending did not have
to be offset with comparable reductions in other programs. However, in some earlier cases a
portion of the supplemental was offset by spending reductions in other programs.
Total annual funding additions in the 39 acts providing supplemental economic, farm disaster, and
other assistance through USDA programs since FY1989 are as follows: FY1989, $ 3.4 billion;
FY1990, $1.5 billion; FY1991, $0; FY1992, $1.0 billion; FY1993, $1.9 billion; FY1994, $3.1
billion; FY1995, $0.6 billion; FY1996, $0.1 billion; FY1997, $0.5 billion; FY1998, $0.2 billion;
FY1999, $6.6 billion; FY2000, $14.8 billion; FY2001, $11.3 billion; FY2002, $0.6 billion;
FY2003, $3.6 billion; FY2004, $0.2 billion; FY2005, $3.8 billion; FY2006, $2.2 billion; FY2007,
$3.65 billion; FY2008, $3.17 billion; FY2009, $6.89 billion.
Grand total, FY1989-FY2009, $68.7 billion.
Congressional Research Service
Emergency Funding for Agriculture: A Brief History of Supplemental Appropriations
Table 1. History of Supplemental Appropriations,
FY1989-FY2009
Act
Major
Agricultural
Provisions
Disaster Assistance
Authorized USDA’s Commodity Credit Corporation (CCC) to use its authority to
Act of 1988
borrow from the U.S. Treasury, in order to provide direct disaster payments to farmers
(P.L. 100-387,
for 1988 crop losses using payment formula in this statute. Permanently authorized
August 11, 1988)
livestock feed assistance programs. No specific appropriation made, nor limitations
placed on payment formulas in the act. CCC outlays in FY1989 were $3.386 billion for
direct disaster payments under this act.
Disaster Assistance
Authorized the CCC to provide disaster payments to farmers for 1989 crop losses.
Act of 1989
Payments were not direct cash payments, but instead were made in the form of
(P.L. 101-82,
certificates redeemable for Government-owned grain. No specific appropriation, nor
August 14, 1989)
limitation placed on formula payment.
The CCC ultimately provided $1.48 billion in commodity certificates in FY1990 under
this act.
Dire Emergency
Authorized the CCC to make $1.75 billion in direct disaster payments using a payment
Supplemental
formula authorized by the 1990 farm bill (P.L. 101-624). Of this total amount, $995
Appropriations for
million was available for 1990 or 1991 crop losses. The remaining $755 million was
Natural Disasters and
made available for 1990, 1991 or 1992 crop losses, pending a request as an emergency
Operation Desert
designation by the Administration, which was later granted. $100 million of the total
Shield/Desert Storm
was reserved for program crops planted in 1991 for harvest in 1992.
(P.L. 102-229,
December 12, 1991)
Dire Emergency
In response to Hurricane Andrew and other disasters, P.L. 102-368 provided a total of
Supplemental
$1.093 billion in farm and nonfarm disaster assistance through various USDA
Appropriations Act,
programs, including:
1992; Hurricane Andrew,
Typhoon Omar,
$382 million in farm disaster payments immediately to supplement the $755 million
Hurricane Iniki, etc.
made available by P.L. 102-229 (see above). Authorized an additional $100 million for
(P.L. 102-368,
disaster payments, pending a separate budget request by the President (later granted in
September 23, 1992)
1993).
Also included in the total is $711.5 million in other USDA-administered emergency
assistance, including:
—$400 million in additional food stamp funding for disaster areas;
—$72.3 million for various rural development loan and grant programs, particularly
for repair and rehabilitation of water and waste systems damaged by natural
disasters;
—$62 million for emergency watershed programs (repair damages to waterways
and watersheds near farmland);
—$48 million for the Tree Assistance Program (cost-sharing program to replant
tree stands destroyed by a disaster);
—$43.285 million in loan subsidy for USDA to make $162.5 million in additional
emergency disaster loans;
—$40.25 million for various rural housing loan and grant programs;
—$27.5 million for the Emergency Conservation Program (rehabilitation of
farmland following a disaster);
—$15 million to restore damaged federal research facilities;
—$3.2 million for salaries and expenses to administer emergency programs.
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Emergency Funding for Agriculture: A Brief History of Supplemental Appropriations
Act
Major
Agricultural
Provisions
Supplemental
The act al owed USDA to apply the unexpended authority for disaster payments
Appropriations Act
(approximately $300 million) in P.L. 102-229 and P.L. 102-368 to make disaster
of 1993
payments for reductions in crop quality caused by any natural disaster affecting a 1990
(P.L. 103-50,
through 1993 crop. Also al owed these unexpended funds to be used for any future
July 2, 1993)
crop losses (1993 through 1995) associated with Hurricane Andrew (1992).
The act also made available approximately $145 million to various other rural
development and housing programs, all of which was offset by a comparable amount of
rescissions in other USDA programs.
Emergency
The act provided approximately $2.7 billion in total USDA assistance, including
Supplemental
$2.5 billion in farm disaster payments for losses associated with the Midwest flood
Appropriations for Relief
of 1993, and other agricultural disasters. Of this $2.5 billion, the act provided a specific
from the Major,
appropriation of $1.050 billion immediately, another $300 million in contingent
Widespread Flooding in
appropriations, and allowed the CCC to borrow as much as necessary to fully fund the
the Midwest Act of 1993
payment formula (which later amounted to approximately $1.1 billion in additional
(P.L. 103-75,
borrowing).
August 12, 1993)
Also included within the total is $60 million for Watershed and Flood Prevention
Operations; $55.4 million for rural development programs;. $30 million for the
Emergency Conservation Program; $21.8 million for farm loan programs; $21 million for
rural housing programs; $12 million for the administration of disaster programs; and
$3.5 million for the Extension Service.
Emergency
Enacted in response to the major California earthquake in Jan. 1993, the act provided
Supplemental
$376.1 million to USDA programs, including $340.5 million for Watershed and Flood
Appropriations Act of
Prevention Operations; $25 million for the Emergency Conservation Program; and $1.4
1994
million to the Extension Service. It also allowed the Commodity Credit Corporation to
(P.L. 103-211,
use its borrowing authority to fund the Tree Assistance Program for any 1993 crop year
February 12, 1994)
disaster. CCC spending for 1993 TAP-eligible losses was $9.2 million, included in the
$376.1 million total. The act also allowed nursery crops to be included in 1993 crop loss
payments under P.L. 103-75 above. Approximately $200 million of the additional
spending was offset by rescissions made to various USDA programs.
Agricultural, Rural
The regular FY1995 appropriations act for agriculture required the CCC to provide
Development, FDA, and
such sums as may be necessary on an emergency basis to ful y fund the disaster payment
Related Agencies
formula in the 1990 farm bill for 1994 crop losses, including aquaculture but excluding
Appropriations Act, 1995
ornamental fish. It also provided payments for subsequent 1995 and 1996 orchard losses
(P.L. 103-330, September
caused by a 1994 freeze. CCC outlays for 1994 crop losses amounted to approximately
30, 1994)
$600 million.
Omnibus Consolidated
In response to Hurricanes Bertha and Marilyn, Pacific Northwest flooding, Northeast
Rescissions and
blizzards and other disasters, the act provided $129.4 million for various USDA
Appropriations Act of
programs, including $80.5 million for Watershed and Flood Prevention Operations, $30
1996
million for the Emergency Conservation Program; $11 million for rural utility grants; and
(P.L. 104-134,
$7.6 million for rural housing repair loans and grants.
April 26, 1996)
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Emergency Funding for Agriculture: A Brief History of Supplemental Appropriations
Act
Major
Agricultural
Provisions
Agricultural, Rural
A supplemental provision in the regular FY1997 agriculture appropriations act made
Development, FDA, and
available $32.244 million in loan subsidy to support $110 million in emergency disaster
Related Agencies
farm loans.
Appropriations Act, 1997
(P.L. 104-180,
August 6, 1996)
Omnibus Consolidated
In response to Hurricanes Fran and Hortense and other disasters, the P.L. 104-208
Appropriations Act, 1997
provided $88 million for USDA flood assistance programs, including $63 million for
(P.L. 104-208, September
Watershed and Flood Prevention Operations, and $25 million for the Emergency
30, 1996)
Conservation Program.
1997 Emergency
The act made available $393 million in supplemental USDA assistance including, $166
Supplemental
million for Watershed and Flood Prevention Operations; $76 million for the WIC
Appropriations Act for
program; $70 million for the Emergency Conservation Program; $50 million for the
Recovery from Natural
Livestock Indemnity Program, (which pays farmers a certain amount for each head of
Disasters, and for
cattle lost to a disaster); $18 million in loan subsidy to support $70 million in additional
Overseas Peacekeeping
USDA emergency disaster loans; $9 million for the Tree Assistance Program; and $4
Efforts, Including Those
million for loan subsidies and grants for the Rural Utilities Assistance Program, for the
in Bosnia
repair of water and sewer systems following a natural disaster.
(P.L. 105-18,
June 12, 1997)
1998 Supplemental
In response to El Nino-driven storms and other natural disasters, the act provided a
Appropriations and
total of $159.8 million in emergency farm spending, including $80 million for the
Rescissions Act
Watershed and Flood Prevention Program; $34 million for the Emergency Conservation
(P.L. 105-174,
Program; $14 million for the Tree Assistance Program; $21 million in loan subsidy to
May 1, 1998)
support $87.4 million in additional emergency disaster loans; $4 million for the
Livestock Indemnity Program; and $6.8 million for dairy farmer disaster payments.
Approximately $47.5 million in rescissions to various other USDA programs was made
to offset a portion of the cost of new spending.
Omnibus Appropriations Provided
$5.893 billion in emergency supplemental appropriations to USDA, primarily
Act of 1999
for assistance to farmers for natural disasters and low farm commodity prices, including:
(P.L. 105-277,
October 21, 1998)
—$3.057 billion in “market loss payments” made to grain, cotton and dairy farmers
in response to low farm commodity prices;
—$1.3 billion in farm disaster payments for 1998 crop losses;
—$575 million in disaster payments for multi-year crop losses;
—$400 million in premium discounts for growers of a 1999 crop who purchase
crop insurance coverage;
—$200 million for livestock feed assistance (for livestock farmers who lost on farm
feed to a disaster);
—$50 million in Alaska salmon assistance;
—$40 million for USDA Farm Service Agency salaries to administer various farm
assistance programs;
—$31.4 million in loan subsidy to support a variety of existing direct and
guaranteed farm loan programs;
—$27 million for recourse loans to mohair growers;
—$25 million for Food for Progress, an overseas food aid program;
—$1 million for honey recourse loans.
Congressional Research Service
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Emergency Funding for Agriculture: A Brief History of Supplemental Appropriations
Act
Major
Agricultural
Provisions
1999 Emergency
Provided
nearly
$723 million in emergency assistance for USDA programs, including:
Supplemental
Appropriations Act
—$149.2 million in emergency food assistance to the Balkans through the P.L. 480
(P.L. 106-31,
program;
May 21, 1999)
—$145 million for USDA’s Section 32 program, to help stabilize farm prices of
surplus commodities;
—$105.6 million in loan subsidy to support additional loans of $1.095 billion for
various USDA farm loan programs;
—$95 million for Watershed and Flood Prevention;
—$70 million for the Livestock Assistance Program to reimburse farmers for the
loss of on-farm feed to a disaster;
—$42.75 million in salaries and expenses of USDA’s Farm Service Agency, for
administering emergency programs;
—$32 million for various rural development programs in response to a hurricane
in Puerto Rico;
—$28 million for the Emergency Conservation Program;
—$28 million for Conservation Reserve Program technical assistance;
—$20 million for migrant and seasonal farm worker assistance;
—$3 million for livestock indemnity payments.
Agricultural, Rural
Provided
$8.7 billion in FY2000 emergency funding for USDA programs in response to
Development, Food and
low farm commodity prices and various natural disasters, including:
Drug Administration,
and Related Agencies
—$6.5 billion in “market loss” payments to compensate growers of specific farm
Appropriations Act,
commodities for low market prices including $5.5 billion to grains and cotton; $475
FY2000
million to oilseeds; $328 million to tobacco; $125 million for dairy; and $42 million
(P.L. 106-78,
for peanuts;
October 22, 1999)
—$1.2 billion in disaster payments for 1999 crop losses;
—$400 million in premium discounts for producers purchasing crop insurance for
a 2000 year crop (and additional administrative costs of $250 million);
—$200 million in livestock feed assistance;
—an estimated $201 million for the cotton Step-2 export competitiveness
program;
—one-year extension of the dairy price support program;
—temporary authority for honey and mohair recourse loans (no additional costs
expected).
Consolidated
Provided
$577 million to supplement several emergency programs initial y funded by
Appropriations Act for
P.L. 106-78 (see above), for relief from Hurricane Floyd in North Carolina, and for
FY2000
other purposes, including $186 million in additional farm disaster payments; $178.6
(P.L. 106-113, November
million in loan subsidy to support $2.5 billion in additional USDA farm loan programs;
29, 1999)
$80 million for the Watershed and Flood Prevention Program; $50 million for the
Emergency Conservation Program; $25.6 million in rural housing loan and grant funds;
$22 million in miscellaneous disaster assistance for Oregon (flood) and Florida (citrus
canker); $20 million for the Noninsured Assistance Program; $10 million in additional
livestock feed assistance; $2.8 million in tobacco assistance.
Congressional Research Service
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Emergency Funding for Agriculture: A Brief History of Supplemental Appropriations
Act
Major
Agricultural
Provisions
Agriculture Risk
Title II provided a total of $7.14 billion in emergency farm assistance ($5.5 billion in
Protection Act of 2000
FY2000 and $1.64 billion in FY2001), mostly in direct payments to growers of various
(P.L. 106-224,
commodities to compensate for low farm commodity prices.
June 20, 2000)
For FY2000: $5.5 billion in market loss payments to growers of grains and cotton,
similar to those made in P.L. 106-78 above.
For FY2001:
—$997 million in direct market loss payments, including $500 million to oilseed
growers; $340 million for tobacco; $100 million for cottonseed; $47 million for
peanuts; $10 million for wool & mohair.
—A total of $301 million in assistance to fruit and vegetable growers, including
$200 million in purchases of commodities in surplus during the 1998 and 1999 crop
years, and $25 million in compensation for various crop diseases.
Other FY2001 crop provisions al ow:
—a producer to receive a loan deficiency payment (LDP) if the land is grazed
rather than harvested in 2001 (cost of $43 million);
—certain previously ineligible grain and cotton growers to receive a 2000 crop-
year LDP ($35 million); and honey growers to receive recourse loans for the 2000
crop ($7 million).
The balance of FY2000-FY2001 spending includes $110 million for nutrition programs;
$51 million for research programs; $50 million for conservation programs; $24 million
for crop and pasture flood compensation; $15 million in emergency loans for seed
producers; $15 million for agricultural marketing programs; $13 million for animal
disease control programs; and $5 million for boll weevil eradication loans.
Emergency
Provided
$210.4 million to USDA programs, primarily for additional assistance to farm
Supplemental Act for
and rural areas affected by a series of 1999 hurricanes and by 2000 wildfires in the
FY2000 (Title II of the
Southwest, including $81 million in crop loan forgiveness for North Carolina producers
Military Construction
whose collateral for a 1999 marketing loan was destroyed by a hurricane; $77.6 million
Appropriations Act,
for the Farm Service Agency for temporary staff to administer emergency farm
2001)
programs, for civil rights cases, and for information technology expenses; $29.5 million
(P.L. 106-246,
for various USDA rural housing loan and grant programs for hurricane aftermath; $10
July 13, 2000)
million for the Emergency Conservation Program and $4 million for Watershed and
Flood Prevention Operations for damage caused by wildfires in the Southwest; and $7
million for the peanut price support program to cover 1999 program losses, which must
eventual y be repaid by producers.
Agricultural, Rural
Authorized an estimated $4.0 billion in FY2001 supplemental USDA spending, including
Development, Food and
the following major provisions:
Drug Administration,
and Related Agencies
—$1.8 billion in natural disaster payments for 2000 crop losses;
Appropriations Act,
—$675 million in income assistance payments to dairy farmers;
FY2001
—$500 million in livestock disaster assistance;
(P.L. 106-387,
—$220 million for various rural development loan and grant programs;
October 28, 2000)
—$138 million to apple and potato growers for crop losses and low prices;
—$117 million to increase farmer enrollment in the Wetlands Reserve Program;
—$110 million for the Emergency Watershed Program;
—$80 million for the Emergency Conservation Program;
—$77 million for various crop diseases;
—$53 million in tobacco assistance;
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Emergency Funding for Agriculture: A Brief History of Supplemental Appropriations
Act
Major
Agricultural
Provisions
—$50 million for FSA to administer emergency programs
—$40 million for conservation technical assistance;
—$40 million for a modification of food stamp eligibility; and
—$20 million each for various forms of assistance for honey, wool and mohair,
cranberry growers, and California fruit growers.
Supplemental
Provides
$65.5 million in various forms of assistance, including $35.5 million for
Appropriations Act, 2001
Watershed and Flood Prevention programs in Florida, Mississippi, Oklahoma, Texas and
(P.L. 107-20,
Wisconsin; $20 million for farmers in the Klamath Basin region affected by the
July 24, 2001)
unavailability of irrigation water; $5 million for the Animal and Plant Health Inspection
Service to guard against the threat of foot and mouth disease, mad cow disease and
other foreign animal diseases; $3 million to enforce the Animal Welfare Act and humane
slaughter practices; and $2 million to assist Yakima Basin farmers in Washington state.
“To respond to the
Provides a total of $5.5 billion in emergency FY2001 income assistance to farmers, as
continuing economic
permitted by the FY2002 budget resolution:
crisis adversely affecting
American agricultural
—Total direct payments of $5.33 billion to supplement the income of growers of
producers”
various crops including—$4.622 billion to grain and rice farmers; $423.51 million
(FY2001 Supplemental
for oilseeds; $129 million for tobacco; $84.7 million for cottonseed; $54.21 million
Authorization for
for peanuts; and $16.94 million for wool and mohair.
Agriculture)
—Total assistance of $159.4 million is provided to growers of specialty crops
(P.L. 107-25,
(primarily fruits and vegetables). This includes base grants of $500,000 per state
August 13, 2001)
and $1 million for Puerto Rico, for a total of $26 million. An additional $133.4
million in specialty crop assistance is provided to the 50 states in proportion to the
value of specialty crop production in the state to national value of specialty crop
production.
—$10 million to make grants to states to pay the costs related to the processing,
transportation and distribution of commodities for the Emergency Food Assistance
Program (EFAP).
Making emergency
Authorized a total of $40 billion in emergency supplemental funding government-wide
supplemental
to recover from the September 11 terrorist attacks and to combat terrorism. Of the
appropriations for
first $20 billion that was made immediately available, $95 million was allocated by the
FY2001, in response to
President to USDA’s Foreign Agricultural Service for P.L. 480 Title II grants to provide
the September 11, 2001
food aid to Afghanistan to mitigate the impact of the ongoing conflict and drought. The
terrorist attacks
second $20 billion could be obligated only when enacted in a subsequent emergency
(P.L. 107-38,
appropriations bill. (See P.L. 107-117 below for USDA’s portion of the second $20
September 18, 2001)
billion.)
Department of Defense
As required by P.L. 107-38 above, the obligation of the second $20 billion of the $40
and Emergency
billion authorized by P.L. 107-38 required enactment of a subsequent act defining the
Supplemental
use of the funds. P.L. 107-117 authorized $367 million of the funds for USDA
Appropriations for
programs primarily to enhance security at the Department and its research facilities,
Recovery from and
including $119.1 million to the Animal and Plant Health Inspection Service; $113 million
Response to Terrorist
to the Agricultural Research Service; $80.9 million to the Secretary’s office; and $15
Attacks on the United
million to the Food Safety Inspection Service. Also included is $39 million for the Special
States Act, 2002
Supplemental Nutrition Program for Women, Infant and Children (WIC) in response to
(P.L. 107-117,
the downturn in the national economy.
January 10, 2002)
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Emergency Funding for Agriculture: A Brief History of Supplemental Appropriations
Act
Major
Agricultural
Provisions
Making supplemental
The supplemental provisions in this act provided government-wide funds to combat
appropriations for
terrorism and for other purposes. A portion was contingent on a request and
further recovery from
emergency declaration from the President. Subsequent to enactment, the President
and response to terrorist
stated that he would not provide such a request and designation, thus making these
attacks on the United
contingent funds unavailable. For USDA programs (excluding the Forest Service), the act
States for the fiscal year
provided $212 million in non-contingent funding, including $94 million for Watershed
ending September 30,
and Flood Prevention Operations; $75 million for WIC; $25 million for security at the
2002, and for other
Ames, IA, animal disease research facility; $10 million in agricultural assistance to
purposes
producers along the Rio Grande due to failure of Mexico to deliver water under a
(P.L. 107-206,
current treaty; and $8 million to fund local television loan guarantees in rural areas.
August 2, 2002)
Another $148 million in funding for USDA programs required a presidential request and
emergency declaration that was not given. Hence, these funds were not made available.
Consolidated
This measure contained an estimated $3.1 billion in farm disaster assistance, in
Appropriations
response to severe drought and other natural disasters affecting 2001 and 2002 farm
Resolution, FY2003
production. The full cost of these provisions was offset by a $3.7 billion limitation placed
(P.L. 108-7,
on future mandatory spending (FY2003-2013) for the Conservation Security Program.
February 20, 2003)
The $3.1 billion in agricultural assistance included:
—an estimated $2.1 billion in direct disaster payments for crop losses in either
2001 or 2002, but not both years;
—direct payments to livestock growers to compensate them for 2001 or 2002
feed and forage losses, including an estimated $100 million in additional funding for
the Livestock Compensation Program (LCP) and $250 million for the Livestock
Assistance Program;
—$250 million for the Section 32 program, to partially reimburse the account for
funds that were used for the LCP;
—$70 million for the Farm Service Agency to implement disaster assistance and
ongoing farm commodity programs;
—$60 million in disaster payments to sugar beet producers for either 2001 or
2002 crop losses;
—an estimated $60 million in payments to sugarcane producers and processors for
hurricane losses in 2002;
—an estimated $54 million to compensate 2002 tobacco producers for losses
associated with quota reductions, pests and diseases;
—$50 million for assistance to producers and first handlers of the 2002 cottonseed
crop;
—$18.2 million to compensate Florida citrus growers whose trees were
quarantined for citrus canker after September 30, 2001;
—$15 million for bovine tuberculosis eradication;
—$10 million in assistance to producers along the Rio Grande, due to failure of
Mexico to deliver water under a current treaty; and
—$2 million to compensate New Mexico farmers for losses caused by a Forest
Service misapplication of pesticides.
Emergency Wartime
Authorized an estimated $79 billion government-wide, primarily to cover the costs of
Supplemental
military operations in Iraq, relief for Iraq and Afghanistan, and homeland security
Appropriations Act, 2003
protection. Within the total was $479 million for USDA programs, including
(P.L. 108-11,
$369 million in additional funding for P.L. 480 Title II foreign food aid assistance
April 16, 2003)
(commodity donations). Of the $369 million, the act reserved $69 million to partially
replenish the Bill Emerson Humanitarian Trust (a grain reserve used to help fulfill food
aid commitments when supplies are short) and $110 million for the Agricultural
Research Service’s National Animal Disease Center in Ames, IA, to modernize facilities
and to bolster security in response to potential threats to the domestic food supply.
Congressional Research Service
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Emergency Funding for Agriculture: A Brief History of Supplemental Appropriations
Act
Major
Agricultural
Provisions
Legislative Branch
An emergency provision was attached to the FY2004 legislative branch appropriations
Appropriations Act, 2004
act making available $9.7 million for the Tree Assistance Program, exclusively to
(P.L. 108-83,
Michigan, in response to an outbreak of fire blight (a bacterial tree disease).
July 1, 2003)
Consolidated
Title H of this omnibus measure provided $225 million in emergency USDA assistance
Appropriations Act, 2004
exclusively to Southern California in response to wildfires in the region, including $150
(P.L. 108-199,
million for the Emergency Watershed Protection Program, $50 million for the Forest
January 23, 2004)
Service for fire management and mitigation activities, $12.5 million for the Tree
Assistance Program, $12 million for the Emergency Conservation Program, and
$500,000 for the Livestock Indemnity Program. Al of this emergency spending was
offset by a $225 million rescission from the Federal Emergency Management Agency.
Division H also deleted the provision in P.L. 108-7 (see above) that placed a $3.7 billion
limitation on spending for the Conservation Security Program over 10 years (FY2003-
FY2013), which effectively al ows ful funding (such sums as necessary) for the program.
Military Construction
Division B of this appropriations act provided a total of $14.5 billion in supplemental
Appropriations and
spending in response to a series of four late-summer hurricanes that struck the
Emergency Hurricane
southern U.S., and for losses associated with a prolonged drought in the western states,
Supplemental
among other disasters. Of the total provided, a CBO-estimated $3.5 billion was for
Appropriations Act, 2005
various agricultural programs. A portion of the agricultural spending was offset by
(P.L. 108-324,
placing a cap on mandatory spending for the Conservation Security Program beginning
October 13, 2004)
in FY2008, which is estimated to save $2.86 billion over a multi-year period.
Included in the $3.5 billion for agriculture was an estimated $2.84 billion that was
expected to benefit various regions that experienced multiple years of drought and a
late summer frost. The balance of $658 million was made available primarily for regions
that were severely affected by the series of 2004 hurricanes and tropical storms.
Included in the $2.84 billion was an estimated:
—$2.3 billion in direct disaster payments for crop losses in either 2003 or 2004,
but not both years;
—$475 million in Livestock Assistance Program payments for forage and feed
losses in either 2003 or 2004, but not both; and
—$35 million for the Tree Assistance Program to replant orchards damaged or
destroyed by a disaster.
Note: Prior to enactment of P.L. 108-324, USDA authorized and implemented a new Florida
Hurricane Disaster Assistance Program to make disaster payments to Florida citrus, vegetable,
and nursery growers using existing USDA funds (estimated at $500 million). Any producer
receiving a payment under this program is ineligible to receive a crop or tree loss payment
under P.L. 108-324.
Included in the $658 million made available primarily for additional agricultural hurricane
relief were:
—$250 million for the Emergency Watershed Protection Program to repair
waterways and watersheds affected by any natural disaster;
—$150 million for the Emergency Conservation Program, to clean up and restore
disaster-ravaged farmland;
—a $90 million transfer to the Section 32 program, to supplement existing funds
earmarked by the Secretary of Agriculture for a disaster payment program
authorized by the Secretary with existing funds, for Florida citrus, vegetable, and
nursery growers;
—$68 million for rural infrastructure through the Rural Community Advancement
Program;
Congressional Research Service
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Emergency Funding for Agriculture: A Brief History of Supplemental Appropriations
Act
Major
Agricultural
Provisions
—$40 million for sugarcane losses caused by a 2004 hurricane;
—$18 million for rural housing loans and grants;
—$10 million for dairy production losses and spoilage caused by a 2004 hurricane;
—$10 million for cottonseed producers and first handlers;
—$10 million for private forest landowners;
—$8.5 million for pecan producers; and
—$4 million for additional Farm Service Agency administrative expenses.
Emergency
P.L. 109-13 provided $82 billion government-wide primarily for ongoing military
Supplemental
operations in Iraq and Afghanistan, counter-terrorism, reconstruction in Afghanistan,
Appropriations Act for
and tsunami relief. Of this amount, $344.5 million was for USDA programs, including
Defense, the Global War
$240 million for P.L. 480 Title II food aid (mainly for the Darfur region of Sudan and
on Terror, and Tsunami
other parts of Africa) and $104.5 million for the emergency watershed protection
Relief, 2005
program.
(P.L. 109-13,
May 11, 2005)
Department of Defense,
Division B of the FY2006 defense appropriations act contained government-wide
Emergency
supplemental funding in the wake of Hurricanes Katrina and Rita and to combat the
Supplemental
potential outbreak of pandemic influenza. Included in the total was $1.17 billion for
Appropriations to
USDA programs, of which $1.076 billion is for agricultural hurricane assistance, and $94
Address Hurricanes in
million is for the USDA response to avian influenza. The $1.076 billion in hurricane aid
the Gulf of Mexico, and
for USDA included $404 million for a new emergency forestry conservation reserve
Pandemic Influenza Act,
program (to compensate private, nonindustrial forest landowners who experienced
2006
large hurricane losses, for retiring their land), $300 million for emergency watershed
(P.L. 109-148, December
protection, $200 million for the emergency conservation program, and $118 million for
30, 2005)
various rural development (housing and infrastructure) programs. Of the $94 million in
USDA avian flu funds, $71.5 million was for its Animal and Plant Health Inspection
Service (APHIS) to bolster its detection and response activities, $11.4 million for the
Office of the Secretary, and the balance for its research agencies.
The cost of this supplemental was offset by transferring existing supplemental funds
from FEMA, a government-wide 1% rescission of discretionary spending, and additional
rescissions to various accounts, including $66.1 million from USDA.
(Separately, USDA made an administrative decision in early 2006 to transfer $250
million of existing funds for disaster payments to crop, livestock , tree, and aquaculture
producers, exclusively for 2005 hurricane losses.)
Emergency
P.L. 109-234 provided $982 million in supplemental USDA assistance, primarily as a
Supplemental
second phase of agricultural assistance (see P.L. 109-148 for the first phase) fol owing
Appropriations Act for
Hurricanes Katrina and Rita in 2005 ($632 million), and for additional overseas food aid
Defense, the Global War
($350 million) through P.L. 480 Title II grants. The $632 million is provided exclusively
on Terror, and
to the affected Gulf states, including $140 million for various livestock assistance
Hurricane Recovery,
programs, $100 million for the emergency forestry conservation reserve program, $95
2006
million for fruits, vegetables, and nursery products, $80 million for sugar cane losses,
(P.L. 109-234,
$35 million for the tree assistance program, $17 million for dairy, $15 million for
June 15, 2006)
cottonseed, and $8 million for aquaculture. Also included is $51 million for watershed
restoration, $26 million for rural development, and $55 million for USDA to repair its
own damaged facilities.
Congressional Research Service
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Emergency Funding for Agriculture: A Brief History of Supplemental Appropriations
Act
Major
Agricultural
Provisions
U.S. Troop Readiness,
P.L. 110-28 provided an estimated $3.65 billion in supplemental FY2007 funding for
Veterans’ Care, Katrina
USDA programs, of which approximately $3 billion was made available to assist farmers
Recovery, and Iraq
and ranchers who experienced severe production losses caused by a natural disaster in
Accountability
2005, 2006, or early 2007 (before February 28). Payments are limited to one of these
Appropriations Act, 2007
three years. Included in the total is an estimated $1.55 billion in crop disaster assistance,
(P.L. 110-28,
$1.23 billion in livestock assistance programs (primarily the livestock compensation
May 25, 2007)
program), an estimated $115 million for the emergency forestry conservation program,
$16 million in dairy loss assistance, $16 million for the emergency conservation
program, and $16 million in emergency grants to low-income migrant workers. The act
also provided $460 million in emergency overseas food aid (primarily for Africa and
Afghanistan), restored $115 million to the Conservation Security Program, and
extended the funding authority for the Milk Income Loss Contract program through
September 30, 2007.
Consolidated
Section 743 of Division A of P.L. 110-161 al ows al 2007 crop and livestock losses to be
Appropriations Act, 2008
eligible for disaster assistance under P.L. 110-28 (see above). Original y, P.L. 110-28
(P.L. 110-161, December
limited 2007 eligible losses to crops planted before February 28, 2007, or livestock
26, 2007)
losses incurred before that date. Payments are still limited to one of the three eligible
years (2005, 2006, or 2007). CBO estimates that the 2007 extension will add $602
million to the cost of crop and livestock assistance for 2005-2007 losses ($592 million
for crops and $10 million for livestock.) Separately, the regular annual appropriation for
WIC is supplemented by an emergency supplemental appropriation of $400 million for
FY2008.
Supplemental
P.L. 110-252 provided total supplemental USDA funding of $1.724 billion. Of this
Appropriations Act, 2008
amount, $1.245 billion was provided for P.L. 480 international food aid ($850 million
(P.L. 110-252,
immediately available until expended, and $395 million in FY2009 until expended), in
June 30, 2008)
response to rising food prices and global food needs. Another $479.9 million was
provided to two conservation programs for clean-up and rehabilitation following the
spring and summer Midwest floods and other disasters, including $89.4 million for the
emergency conservation program and $390.5 million for the emergency watershed
conservation program.
Consolidated Security,
The Disaster Relief and Recovery Supplemental Appropriations Act of 2008 (Division B
Disaster Assistance, and
of P.L. 110-329) provided $22.9 billion government-wide for relief and recovery from
Continuing
floods, hurricanes, and other natural disasters. Of this amount, $418 million was
Appropriations Act, 2009
appropriated in FY2008 for USDA programs, including $188 million for the cost of
(P.L. 110-329,
making loans and grants for housing and community facilities in rural areas affected by a
Sept. 30, 2008)
2008 natural disaster, $115 million for the emergency conservation program, $100
million for the emergency watershed protection program, $5 million to repair USDA
research facilities affected by a 2008 disaster, $5 million to USDA’s Office of Inspector
General for oversight of disaster funding, and $5 million for Animal and Plant Health
Inspection Service surveillance and eradication to address confirmed or suspected
pathogen outbreaks.
American Recovery and
ARRA, commonly referred to as the economic stimulus package, was enacted in
Reinvestment Act
response to a deep economic recession facing the United States and the rest of the
(ARRA), 2009
world in early 2009. It provided a CBO-estimated $787 billion in new spending across
(P.L. 111-5,
al government programs and through additional tax benefits. For USDA agriculture and
Feb. 17, 2009)
rural programs, ARRA provided an estimated $5.725 billion in new spending,, including
$4.36 billion for USDA rural development programs (of which $2.5 billion was for
broadband infrastructure development, $1.38 billion for water and waste disposal, $200
million for housing, $150 million for rural businesses, and $130 million for community
facilities); $744 million for farmer assistance (of which $674 million was for the cost of
Congressional Research Service
10
Emergency Funding for Agriculture: A Brief History of Supplemental Appropriations
Act
Major
Agricultural
Provisions
allowing producers not carrying crop insurance in 2008 to be eligible for a payment
under the supplemental revenue (SURE) program, $50 million for aquaculture
assistance, and $20 million to support an additional $173 million in USDA farm
operating loans); $348 million in conservation assistance (including $145 million for
watershed and flood prevention, $145 million for floodplain easements, $50 million for
watershed rehabilitation, and $8 million for technical assistance), $250 million for USDA
facilities and infrastructure (including $176 million in deferred maintenance for its
research facilities, $50 million for farm program information technology, and $24 million
for USDA headquarters repair and improvements), and $23 million for oversight and
audit activities related to the USDA portion of the stimulus spending. (NOTE: Not
included in the total estimate of $5.725 billion is an estimated $20.84 billion for the
USDA food and nutrition programs, primarily food stamps.)
For more information, see CRS Report R40160, Agriculture, Nutrition, and Rural Provisions
in the American Recovery and Reinvestment Act (ARRA) of 2009.
Supplemental
P.L. 111-32 provided supplemental funding of $771 million for agricultural spending,
Appropriations Act, 2009
including $700 million for P.L. 480 international food assistance and $71 million to
(P.L. 111-32,
cover the cost of making an additional $760 million in USDA direct farm loans and $150
June 24, 2009)
million in government-guaranteed farm operating loans.
Summary of
FY1989:
$3.39
billion
FY2000: $14.78 billion
Supplemental
FY1990: $1.48 billion
FY2001: $11.30 billion
Appropriations for
USDA Programs,
FY1991: $0
FY2002: $579 million
FY1989-FY2009
FY1992: $995 million
FY2003: $3.58 billion
FY1993: $1.95 billion
FY2004: $234.7 million
FY1994: $3.08 billion
FY2005: $3.844 billion
FY1995: $600 million
FY2006: $2.152 billion
FY1996: $129 million
FY2007: $3.653 billion
FY1997: $513 million
FY2008: $3.165 billion
FY1998: $160 million
FY2009: $6.891 billion
FY1999: $6.62 billion
Grand Total, FY1989-FY2009: $68.69 billion
Author Contact Information
Ralph M. Chite
Section Research Manager
rchite@crs.loc.gov, 7-7296
Congressional Research Service
11