Agriculture and Related Agencies:
July 1, 2020
FY2021 Appropriations
Jim Monke
The Agriculture appropriations bill funds the U.S. Department of Agriculture (USDA)
Specialist in Agricultural
except for the U.S. Forest Service. It also funds the Food and Drug Administration
Policy
(FDA) and—in even-numbered fiscal years—the Commodity Futures Trading

Commission (CFTC).

Agriculture appropriations include both mandatory and discretionary spending. Discretionary amounts, though,
are the primary focus during the bill’s development. The largest discretionary spending items are the Special
Supplemental Nutrition Program for Women, Infants, and Children (WIC); agricultural research; rural
development; FDA; foreign food assistance and trade; farm assistance loans and salaries; food safety inspection;
animal and plant health programs; and technical assistance for conservation programs.
For FY2021, the Trump Administration requests $19.9 billion for discretionary-funded accounts within the
jurisdiction of Agriculture appropriations subcommittees. The request would be a reduction of $3.6 billion from
FY2020 (-15%). The primary changes in the Administration’s request includes reductions to foreign food
assistance (-$1.97 billion); domestic nutrition assistance (-$1.06 billion); and agricultural research, rural
development, regulatory, and farm production and conservation agencies (-$530 million). The overall nondefense
spending cap for FY2021 that Congress may use to develop the FY2021 appropriations is about 1% higher than in
FY2020.
Separate from the regular FY2020 annual appropriation, Congress passed four supplemental appropriations acts in
response to the COVID-19 pandemic, all designated as emergency spending. These acts provide $53 billion
during FY2020 to programs in the jurisdiction of the Agriculture appropriations subcommittees. Of this, $36
billion are specified supplemental amounts, $3 billion is from an indefinite authorization, and $14 billion is
reimbursement for past obligations that is comparable to the annual appropriation.
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Agriculture and Related Agencies: FY2021 Appropriations

Discretionary Agriculture Appropriations, by Title, FY2020-FY2021

Source: CRS, using P.L. 116-94, House Cmte. Print 38-679, unpublished CBO tables, OMB FY2021 Budget of the U.S. Government,
Appendix, and USDA FY2020 Budget Explanatory Notes.
Note: Admin. = Trump Administration Budget Request. CFTC = Commodity Futures Trading Commission. For comparability,
includes CFTC in Related Agencies in all columns regardless of jurisdiction.
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Status of FY2021 Agriculture Appropriations
On February 10, 2020, the Trump Administration released its FY2021 budget request to Congress
(Table 1). As of June 29, 2020, neither the House nor the Senate has yet marked up an FY2021
Agriculture appropriations bill. See Figure 1 for a comparison of timelines and Appendix D for
more details.
Table 1. Status of FY2021 Agriculture Appropriations
House Action
Senate Action
Administration
Final
Request
Subcmte.
Cmte.
Floor
Subcmte.
Cmte.
Floor
Appropriation
2/10/2020
—
—
—
—
—
—
—
OMB Budget
Appendix
USDA
FDA
CFTC
FCA
Source: CRS, compiled from Congress.gov, OMB, and agency websites.
Note: OMB = Office of Management and Budget, USDA = U.S. Department of Agriculture, FDA = Food and
Drug Administration, CFTC = Commodity Futures Trading Commission, and FCA = Farm Credit
Administration.
For accounts in the jurisdiction of the Agriculture appropriations bill, the Administration’s budget
requests $19.9 billion in discretionary spending, a $3.6 billion reduction from FY2020 (-15%,
Table 2). This is based on the jurisdiction of the House Agriculture subcommittee, including the
Commodity Futures Trading Commission (CFTC).1
The primary changes in the Administration’s FY2021 request compared to FY2020 include
reductions to foreign assistance (-$1.97 billion) and domestic nutrition assistance (-$1.06 billion)
and reductions to agricultural research, rural development, regulatory, and farm production and
conservation agencies (-$530 million).
As Congress develops appropriations bills, the overall nondefense spending cap for FY2021 that
was set in the Bipartisan Budget Act of 2019 (P.L. 116-37) is about 1% higher than in FY2020.

1 Jurisdiction for CFTC appropriations differs between the chambers. Since FY2008, CFTC is marked up in the
Agriculture Subcommittee of the House Appropriations Committee and in the Financial Services and General
Government Subcommittee of the Senate Appropriations Committee. The enacted CFTC appropriation is carried in the
Agriculture bill in even-numbered fiscal years and in the Financial Services bill in odd-numbered fiscal years.
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Table 2. Agriculture and Related Agencies Appropriations, by Title, FY2020-FY2021
Budget authority in millions of dollars

FY2020
FY2021
Change
COVID-19
Admin.
FY2020 to
Title of Agriculture Appropriations Act
P.L. 116-94
Actsa
requestb
House
Senate
Enacted
Admin.
I. Agricultural Programs: Discretionary
6,163.1
133.8
6,148.0
—
—
—
-15.1
Mandatory
1,404.0
—
1,431.0
—
—
—
+27.0
Subtotal
7,567.1
—
7,579.0
—
—
—
+11.9
II. Farm Production and Conservation Programs
2,819.0
3.0
2,618.7
—
—
—
-200.2
Mandatory
36,268.5
14,000.0
34,269.6
—
—
—
-1,998.9
Subtotal
39,087.5
14,003.0
36,888.3
—
—
—
-2,199.2
III. Rural Development
3,240.6c
45.5
3,410.5
—
—
—
+169.9
IV. Domestic Food Programs: Discretionary
6,566.0
1,350.0
5,700.7
—
—
—
-865.3
Mandatory
91,436.3
24,710.0
93,309.8
—
—
—
+1,873.5
Subtotal
98,002.3
26,060.0
99,010.5
—
—
—
+1,008.2
V. Foreign Assistance
2,172.7
4.0
205.9
—
—
—
-1,966.8
VI. Food and Drug Administration
3,171.5c
163.0
3,220.4
—
—
—
+48.9
Commodity Futures Trading Commission
315.0
—
226.5
—
—
—
-88.5
VII. General Provisions:

CHIMPS and rescissionsd
-1,006.1
—
-1,200.0
—
—
—
-193.9
Emergency appropriations
535.0
—
0.0
—
—
—
-535.0
Other appropriations
440.3
12,600.0
0.0
—
—
—
-440.3
Scorekeeping adjustmentse
-398.0
—
-403.0
—
—
—
-5.0
Emergency designation in this bil
-535.0
—a
0.0
—
—
—
+535.0
Discretionary: Senate basis w/o CFTC
[23,169.1]
14,299.3
19,701.3
—
—
—
-3,467.9
Discretionary: House basis w/ CFTC
23,484.1
14,299.3
19,927.8
—
—
—
-3,556.4
Mandatory
129,108.8
38,710.0
129,010.4
—
—
—
-98.4
Total: Senate basis w/o CFTC
152,278.0
53,009.3
148,711.7
—
—
—
-3,566.3
Total: House basis w/ CFTC
152,593.0
53,009.3
148,938.2
—
—
—
-3,654.8
Source: CRS, using appropriations text and reports; unpublished CBO tables; OMB FY2021 Budget of the U.S.
Government, Appendix; and USDA FY2020 Budget Explanatory Notes.
Notes: Amounts are nominal discretionary budget authority unless labeled otherwise. Bracketed amounts are
not in the official totals due to differing House-Senate jurisdiction for CFTC but are shown for comparison.
a. Total from four coronavirus supplemental appropriations acts (P.L. 116-123, P.L. 116-127, P.L. 116-136, P.L.
116-139), all of which was emergency spending. Although amounts were not designated mandatory, they are
grouped here for comparison to accounts in the annual appropriations. See detail in Table 3.
b. The request is based on current law and does not reflect the Administration’s various legislative proposals.
c. Excludes amounts that are provided separately in General Provisions (see Table B-3).
d. Changes in Mandatory Program Spending (CHIMPS) revise mandatory programs via appropriations (Table
B-1). Rescissions are permanent cancellations of previous authorizations (see Table B-2).
e. “Scorekeeping adjustments” are part of the official accounting for budget enforcement (Table B-4).
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Figure 1. Timeline of Action on Agriculture Appropriations, FY2011-FY2021

Source: CRS. For specific dates and links to bil s, see Appendix D.
Notes: Blue shading shows the beginning of each fiscal year. Yellow shading is the current appropriations cycle.
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Other CRS Resources for Agricultural Appropriations
Agencies and selected programs. See also amounts in Table 3.

CRS Report R46255, International Food Assistance: FY2020 Appropriations

CRS Report R46011, FY2020 Appropriations for Agricultural Conservation

CRS Insight IN11168, The CCC Anomaly in an FY2020 Continuing Resolution

CRS In Focus IF11245, FY2019 Supplemental Appropriations for Agriculture

CRS Report R45743, USDA Domestic Food Assistance Programs: FY2019 Appropriations

CRS Report R44576, The Food and Drug Administration (FDA) Budget: Fact Sheet

CRS Report R45413, FY2018 and FY2019 Agriculture Appropriations: Federal Food Safety Activities

CRS In Focus IF10953, Agriculture Appropriations: Animal and Plant Health
COVID-19 supplemental appropriations.

CRS In Focus IF11491, Supplemental Appropriations for Agriculture and Related Agencies Due to COVID-19

CRS Report R46395, USDA’s Coronavirus Food Assistance Program (CFAP) Direct Payments

CRS Report R46347, COVID-19, U.S. Agriculture, and USDA’s Coronavirus Food Assistance Program (CFAP)

CRS Report R46348, COVID-19: Supply Chain Disruptions in the U.S. Fruit and Vegetable Industry: In Brief

CRS Insight IN11366, COVID-19 Disrupts U.S. Meat Supply; Producer Prices Tumble

CRS Insight IN11250, USDA Domestic Food Assistance Programs’ Response to COVID-19: P.L. 116-127, P.L. 116-
136, and Related Efforts

CRS In Focus IF11575, COVID-19 and Global Food Security: Issues for Congress

CRS Insight IN11415, COVID-19 and USDA Farm Loan Flexibilities

CRS Insight IN11391, USDA Rural Development and COVID-19: Supplemental Funding and Agency Actions
Scope of Agriculture Appropriations
The Agriculture appropriations bill—formally known as the Agriculture, Rural Development,
Food and Drug Administration, and Related Agencies Appropriations Act—funds all of the U.S.
Department of Agriculture (USDA), excluding the U.S. Forest Service.2 It also funds the Food
and Drug Administration (FDA) in the Department of Health and Human Services (HHS) and, in
even-numbered fiscal years, CFTC.
Jurisdiction is with the House and Senate Committees on Appropriations and their Subcommittees
on Agriculture, Rural Development, Food and Drug Administration, and Related Agencies. The
bill includes mandatory and discretionary spending, but the discretionary amounts are the primary
focus (Figure 2). Some programs are not in the authorizing jurisdiction of the House or Senate
Agriculture Committees, such as FDA; Special Supplemental Nutrition Program for Women,
Infants, and Children (WIC); or child nutrition (checkered regions in Figure 2).
The federal budget process treats discretionary and mandatory spending differently:3
 Discretionary spending is controlled by annual appropriations acts and receives
most of the attention during the appropriations process. The annual budget
resolution4 process sets spending limits for discretionary appropriations. Agency
operations (salaries and expenses) and many grant programs are discretionary.

2 Although the Forest Service is part of USDA, its appropriations jurisdiction is in the Interior Appropriations Act.
3 See CRS In Focus IF11032, Budgetary Decisionmaking in Congress; and CRS Report R44582, Overview of Funding
Mechanisms in the Federal Budget Process, and Selected Examples.
4 See CRS Report R42388, The Congressional Appropriations Process: An Introduction.
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 Mandatory spending5 is carried in the appropriation and usually advanced
unchanged, since it is controlled by budget rules during the authorization
process.6 Spending for so-called entitlement programs is determined in laws such
as the 2018 farm bill7 and 2010 child nutrition reauthorization.8
In the FY2020 appropriation (P.L. 116-94), the discretionary amount is 15% ($23 billion) of the
$153 billion total. Mandatory spending carried in the act comprised $129 billion, about 85% of
the total, of which about $106 billion is attributable to programs in the 2018 farm bill.
Within the discretionary total, the largest spending items are WIC, agricultural research, rural
development, FDA, foreign food aid and trade, farm assistance loans and salaries, food safety
inspection, animal and plant health programs, and technical assistance for conservation program.
The main mandatory spending items are the Supplemental Nutrition Assistance Program (SNAP)
and other food and nutrition act programs, child nutrition (school lunch and related programs),
crop insurance, and farm commodity and conservation programs that are funded through USDA’s
Commodity Credit Corporation (CCC). SNAP is referred to as an “appropriated entitlement” and
requires an annual appropriation.9 Amounts for the nutrition program are based on projected
spending needs. In contrast, the CCC appropriations reimburse spending from a line of credit.10

5 Mandatory spending creates funding stability and consistency compared to annual discretionary appropriations. In
agriculture, it originated with farm commodity programs that had uncertain outlays due to weather and markets.
6 See CRS Report 98-560, Baselines and Scorekeeping in the Federal Budget Process.
7 P.L. 115-334 (Agricultural Act of 2018). See CRS Report R45425, Budget Issues That Shaped the 2018 Farm Bill.
8 P.L. 111-296 (Healthy, Hunger-Free Kids Act of 2010). See CRS In Focus IF10266, Child Nutrition Reauthorization
(CNR): An Overview.
9 See CRS Report RS20129, Entitlements and Appropriated Entitlements in the Federal Budget Process.
10 See CRS Report R44606, The Commodity Credit Corporation: In Brief.
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Figure 2. Scope of Agriculture and Related Agencies Appropriations
Budget authority in billions of dollars

Source: CRS.
Notes: SNAP = Supplemental Nutrition Assistance Program; CCC = Commodity Credit Corporation; FCIC =
Federal Crop Insurance Corporation; Section 32 = Funds for Strengthening Markets, Income and Supply; WIC =
Special Supplemental Nutrition Program for Women, Infants, and Children; CSFP = Commodity Supplemental
Food Program; FDA = Food and Drug Administration; FSA = Farm Service Agency, incl. Farm Production and
Conservation Business Center; RMA = Risk Management Agency; FSIS = Food Safety and Inspection Service;
APHIS = Animal and Plant Health Inspection Service; NRCS = Natural Resources Conservation Service. Does
not show agencies under $0.5 bil ion. Spending in the General Provisions are presented with the agencies.
Key Budget Terms
Budget authority is the main purpose of an appropriations act or a law authorizing mandatory spending. It
provides the legal basis from which to obligate funds. It expires at the end of a period, usually after one year unless
specified otherwise (e.g., two years or indefinite). Most funding amounts in this report are budget authority.
Obligations are contractual agreements between a government agency and its clients or employees. These occur
when an agency agrees to spend money from its budget authority. The Antideficiency Act prohibits agencies from
obligating more budget authority than is provided in law, such as during a government shutdown.
Outlays are the payments (cash disbursements) that satisfy a valid obligation. Timing of outlays may differ from
budget authority or obligations because payments from an agency may not occur until services are fulfil ed, goods
are delivered, or construction is completed, even though an obligation occurred.
Program level represents the sum of the activities undertaken by an agency. A program level may be higher than
a budget authority if the program (1) receives user fees, (2) includes loans that are leveraged by an expectation
of repayment (loan authority may exceed budget authority), or (3) receives transfers from other agencies.
Rescissions are actions that reduce budget authority after enactment. They generally score budgetary savings.
CHIMPS (Changes in Mandatory Program Spending) are adjustments via an appropriations act that can change
available funding for mandatory programs. CHIMPS usually change spending for one year and may score either as
an increase or decrease to outlays. They do not change the underlying authority of the program in law.
For more background, see CRS Report 98-721, Introduction to the Federal Budget Process.
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Recent Trends in Agriculture Appropriations
Discretionary Agriculture appropriations reached a 10-year low in FY2013 after decreasing from
a high in FY2010. Since FY2013, they have gradually increased 19% over seven years. Changes
within titles have generally been proportionate to changes in the overall bill, though some areas
have sustained relative increases, such as FDA (related agencies) and rural development.
The stacked bars in Figure 3 represent the discretionary authorization for each appropriations
title. The total of the positive stacked bars is the budget authority in Titles I-VI. In FY2018,
USDA reorganization affected the placement of some programs between Titles I and II of the bill
(most noticeably the Farm Service Agency). In most years, the cumulative appropriation for the
agencies is higher than the official discretionary total in the spending allocation (the blue line)
because of the budgetary offset from negative amounts in Title VII (general provisions) and other
negative scorekeeping adjustments. These negative offsets are mostly due to rescissions of prior-
year unobligated funds and, before FY2018, limits placed on mandatory programs.
Historical trends may be tempered by inflation adjustments, as shown in the dotted line. In
FY2020 the inflation-adjusted total is 0.2% less than it was in FY2011 and 2.8% less than it was
in FY2018.
Figure 3. Discretionary Agriculture Appropriations, by Title, FY2011-FY2021

Source: CRS.
Note: For FY2021, Adm. is the Trump Administration’s request. For comparability, includes CFTC in Related
Agencies in all columns regardless of jurisdiction. The inflation-adjusted line was calculated using the gross
domestic product price deflator. Amounts printed diagonally indicate the solid line, which is the subcommittee
allocation.
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Action on FY2021 Appropriations
Administration’s Budget Request
The Trump Administration released its FY2021 budget proposal to Congress on February 10,
2020.11 USDA concurrently released its more detailed budget summary and justification,12 as did
the FDA,13 the CFTC,14 and the Farm Credit Administration.15 The Administration also
highlighted separately some of its proposed reductions and eliminations.16
For accounts in the jurisdiction of the Agriculture appropriations bill, the Administration’s budget
requests $19.9 billion, a $3.6 billion reduction from FY2020 (-15%; Table 3, Figure 3).17 This is
compiled based on the jurisdiction of the House Agriculture subcommittee, including the CFTC.
The primary changes in the Administration’s request compared to what Congress enacted in
FY2020 include reductions to the following:
 Foreign assistance (-$1.97 billion, -90%), mostly by eliminating funding for
Food for Peace Title II grants (-$1.73 billion) and the McGovern-Dole
International Food for Education (-$220 million).18
 Domestic nutrition assistance programs (-$1.06 billion), mostly from
reductions to the WIC program (-$549 million, -9%) and the commodity
assistance program (-$264 million, -77%). In addition, the Administration
proposes rescinding more from unspent WIC balances than was done by the
enacted FY2020 General Provisions (-$200 million), which contributes to the
overall budget effect of the request.
 Farm Production and Conservation mission area (-$200 million, -7%),
mostly from defunding watershed programs that are typically not requested by
the Administration.
 Agricultural research agencies (-$151 million net, -4%), including from the
Agricultural Research Service (ARS) facilities (-$143 million, -74%); ARS
salaries and expenses (-$46 million, -3%); the Economic Research Service (-$23
million, -27%); and formula research grants (-$53 million). The request would
increase competitive research (+$175 million) and create funding for the Office
of Chief Scientist (+$6 million).19
 Rural development (-$130 million), from reductions to rural business
development programs (-$95 million, -90%); rural housing programs (-$92

11 OMB, FY2021 Budget of the U.S. Government, Appendix.
12 USDA, FY2021 USDA Budget Summary; and USDA, FY2021 Budget Explanatory Notes for Committee on
Appropriations.
13 FDA, FY2021 Justification of Estimates for Appropriations Committees.
14 CFTC, FY2021 President’s Budget Request.
15 Farm Credit Administration, FY2021 Proposed Budget and Performance Plan.
16 OMB, FY2021 Budget of the U.S. Government, Major Savings and Reforms.
17 This represents the Administration’s request based on current law and does not reflect the Administration’s various
legislative proposals that would change mandatory programs and any related changes to appropriations.
18 A similar reduction is discussed in CRS Report R46255, International Food Assistance: FY2020 Appropriations.
19 CRS Report R46341, Federal Research and Development (R&D) Funding: FY2021.
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million, -5%); rural water and the regular rural broadband and distance
learning/telemedicine accounts (-$58 million, -8%); and a net reduction to the
rural broadband E-Connect program (-$50 million net,20 -17%). The
Administration would increase rural development salaries and expenses (+$64
million net) and create a new Higher Blends Infrastructure Initiative (+$100
million).
 Regulatory agencies (-$50 million), mostly by reducing the Agricultural
Marketing Service (-$40 million, -21%) and the Animal and Plant Health
Inspection Service (-$10 million, -1%).
 Commodity Futures Trading Commission (-$89 million, -28%, to be replaced
by new user fees).
 Eliminating other appropriations that were in General Provisions (-$140
million).
These reductions are offset by increases to the following:
 USDA administration (+$142 million, +30%), mostly by increasing the Office
of Chief Information Officer (+$76 million, +155%); buildings and facilities
(+$25 million, +19%); the Office of Budget and Program Analysis (+$11 million,
+117%); and Departmental Administration (+$6 million, +27%). The request
would create an Office of Safety, Security and Protection (+$25 million) and an
Office of Information Affairs (+$2.5 million). It would reduce the Office of
Public Partnership and Engagement (-$4 million, -68%).
 Food Safety Inspection Service (+$38 million, +4%).
 Food and Drug Administration (+49 million, +2%).
Budget Caps, Subcommittee Allocations, and Sequestration
Budget enforcement has procedural and statutory elements. The procedural elements relate to a
budget resolution and are enforced with points of order. The statutory elements impose
discretionary spending limits and are enforced with budget caps and sequestration.21
Budget Resolution
Typically, each chamber’s Appropriations Committee receives a top-line limit on discretionary
budget authority, referred to as a “302(a)” allocation, from the Budget Committee via an annual
budget resolution. The Appropriations Committees then in turn subdivide the allocation among
their subcommittees, referred to as the “302(b)” allocations.22
For FY2021, the House and Senate Budget Committees have not reported a budget resolution.

20 The FY2021 budget request would move funding for the rural broadband E-Connect program into the regular Rural
Utilities Service program account (+$250 million) while eliminating funding that was in the General Provisions title of
the FY2020 appropriation (-$300 million). This is separate from the supplemental $100 million for E-Connect that was
in the CARES Act coronavirus appropriation.
21 CRS Report R42388, The Congressional Appropriations Process: An Introduction.
22 References to 302(a) and 302(b) are to sections of the Congressional Budget Act of 1974.
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Budget Caps
The Budget Control Act of 2011 (BCA, P.L. 112-25) set discretionary budget caps from FY2013
through FY2021 as a way of reducing federal spending.23 Sequestration is an across-the-board
backstop to achieve budget reductions if spending exceeds the budget caps (2 U.S.C. §901(c)).24
Subsequent Bipartisan Budget Acts (BBAs) have avoided sequestration on discretionary
spending—with the exception of FY2013—by raising those caps four times in two-year
increments in 2013, 2015, 2018, and 2019 (Figure 4).25
Most recently, the BBA of 2019 (P.L. 116-37) raised the cap applicable to FY2021 nondefense
discretionary spending to $627 billion. Agriculture appropriations are part of the nondefense
spending category. The BBA provides language to execute (or “deem”) the caps for the
appropriations process without a budget resolution.26
The $627 billion nondefense budget cap for FY2021 is about 1% greater than the cap that was
used to write the FY2020 appropriations. This cap is to be shared among many appropriations
subcommittees when spending allocations are made.
Discretionary Spending Allocations
In the absence of a budget resolution and without committee meetings during the coronavirus
pandemic, subcommittee allocations have not been announced in either chamber.
Figure 4. BCA Discretionary Limits, FY2014-FY2021
Budget authority in billions of nominal dollars

Source: CRS Insight IN11148, The Bipartisan Budget Act of 2019: Changes to the BCA and Debt Limit.

23 CRS Report R44874, The Budget Control Act: Frequently Asked Questions.
24 CRS Report R42972, Sequestration as a Budget Enforcement Process: Frequently Asked Questions.
25 CRS Insight IN11090, Increasing the BCA Spending Limits: Characteristics of Previously Enacted Legislation.
26 CRS Insight IN11148, The Bipartisan Budget Act of 2019: Changes to the BCA and Debt Limit.
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House Action
The House Agriculture Appropriations Subcommittee held hearings in February and March 2020
on the request for USDA overall, the FDA and FCA budget requests, and the USDA and HHS
Offices of Inspector General.27 Neither the Agriculture subcommittee nor the Appropriations
Committee has marked up a FY2021 Agriculture appropriations bill.
Senate Action
The Senate Agriculture Appropriations Subcommittee held a hearing on the USDA budget request
in March 2020.28 Neither the Agriculture subcommittee nor the Appropriations Committee has
marked up a FY2021 Agriculture appropriations bill.

27 House Agriculture Appropriations Subcommittee, hearing videos at https://appropriations.house.gov/subcommittees/
agriculture-rural-development-food-and-drug-administration-and-related-agencies-116th/congress_hearing.
28 Senate Agriculture Appropriations Subcommittee, hearing videos at https://www.appropriations.senate.gov/
subcommittees/agriculture-rural-development-food-and-drug-administration-and-related-agencies.
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Table 3. Agriculture and Related Agencies Appropriations, by Agency, FY2019-FY2021
Budget authority in millions of dollars
FY2019
FY2020
FY2021
Change: FY2020 to...

P.L. 116-
COVID-
Admin.
Admin.
Agency or major program
P.L. 116-6 94
19 Actsa
requestb
House
Senate
Enacted
request
House
Title I. Agricultural Programs

Departmental Administration (Table A-1)
390.4
472.8
0.8
614.7
—
—
—
+141.9
—
Research, Education and Economics

Agricultural Research Service
1,684.5
1,607.1
—
1,418.0
—
—
—
-189.1
—
National Institute of Food and Agriculture
1,471.3
1,527.4
—
1,590.8
—
—
—
+63.4
—
National Agricultural Statistics Service
174.5
180.3
—
177.5
—
—
—
-2.8
—
Economic Research Service
86.8
84.8
—
62.1
—
—
—
-22.6
—
Under Secretary
0.8
0.8
—
6.8
—
—
—
+6.0
—
Marketing and Regulatory Programs

Animal and Plant Health Inspection Service
1,014.3
1,045.9
55.0
1,035.6
—
—
—
-10.3
—
Agricultural Marketing Service
160.3
188.2
45.0
148.4
—
—
—
-39.7
—
Section 32 (M)
1,374.0
1,404.0
—
1,431.0
—
—
—
+27.0
—
Under Secretary
0.9
0.8
—
0.9
—
—
—
+0.1
—
Food Safety

Food Safety and Inspection Service
1,049.3
1,054.3
33.0
1,092.4
—
—
—
+38.1
—
Under Secretary
0.8
0.8
—
0.8
—
—
—
+0.0
—
Subtotal, Title I

Discretionary
6,033.9
6,163.1
133.8
6,148.0
—
—
—
-15.1
—
Mandatory (M)
1,374.0
1,404.0
—
1,431.0
—
—
—
+27.0
—
Subtotal
7,407.9
7,567.1
—
7,579.0
—
—
—
+11.9
—
CRS-12

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FY2019
FY2020
FY2021
Change: FY2020 to...

P.L. 116-
COVID-
Admin.
Admin.
Agency or major program
P.L. 116-6 94
19 Actsa
requestb
House
Senate
Enacted
request
House
Title II. Farm Production and Conservation

Business Center
216.4
203.9
—
243.6
—
—
—
+39.7
—
Farm Service Agencyc
1,494.2
1,541.7
3.0
1,484.9
—
—
—
-56.8
—
FSA Farm Loans: Loan Authorityd
7,987.7
8,431.0
—
8,916.8
—
—
—
+485.8
—
Risk Management Agency
58.4
58.4
—
59.4
—
—
—
+1.1
—
Federal Crop Insurance Corporation (M)
15,410.6
9,959.0
—
8,716.0
—
—
—
-1,243.0
—
Commodity Credit Corporation (M)
15,410.0
26,309.0
14,000.0e
25,553.1
—
—
—
-755.9
—
Conservation Operations
819.5
829.6
—
830.2
—
—
—
+0.6
—
Watershed and Flood Prevention
150.0
175.0
—
0.0
—
—
—
-175.0
—
Watershed Rehabilitation Program
10.0
10.0
—
0.0
—
—
—
-10.0
—
Under Secretary
0.9
0.9
—
1.1
—
—
—
+0.2
—
Subtotal, Title II

Discretionary
2,748.8
2,819.0
3.0
2,618.7
—
—
—
-200.2
—
Mandatory (M)
30,821.1
36,268.5
14,000.0
34,269.6
—
—
—
-1,998.9
—
Subtotal
33,569.9
39,087.5
14,003.0
36,888.3
—
—
—
-2,199.2
—
Title III. Rural Development

Salaries and Expenses (including transfers)f
686.8
697.8
—
761.5
—
—
—
+63.6
—
Rural Housing Service
1,606.0
1,686.7
—
1,595.0
—
—
—
-91.7
—
RHS Loan Authorityd
28,293.8
28,646.0
—
27,260.0
—
—
—
-1,386.0
—
Rural Business-Cooperative Service
98.6
105.0
20.5
110.4
—
—
—
+5.4
—
RBCS Loan Authorityd
1,026.4
1,088.9
1,000.0
1,500.0
—
—
—
+411.1
—
Rural Utilities Service
620.2g
750.3g
25.0
942.6h
—
—
—
+192.3
—
RUS Loan Authorityd
8,419.9
8,401.2
—
7,518.0
—
—
—
-883.2
—
CRS-13

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FY2019
FY2020
FY2021
Change: FY2020 to...

P.L. 116-
COVID-
Admin.
Admin.
Agency or major program
P.L. 116-6 94
19 Actsa
requestb
House
Senate
Enacted
request
House
Under Secretaryi
—i
0.8
—
1.0
—
—
—
+0.2
—
Subtotal, Title III
3,011.7g
3,240.6g
45.5g
3,410.5
—
—
—
+169.9
—
Subtotal, RD Loan Authorityd
37,740.0
38,136.1
1,000.0
36,278.0
—
—
—
-1,858.1
—
Title IV. Domestic Food Programs

Child Nutrition Programs (M)
23,140.8
23,615.1
8,800.0
25,040.9
—
—
—
+1,425.8
—
WIC Program
6,075.0
6,000.0
500.0
5,451.5
—
—
—
-548.5
—
SNAP, Food and Nutrition Act Programs (M)
73,476.9
67,886.3
15,910.0j
68,281.4
—
—
—
+395.1
—
Commodity Assistance Programs
322.1
344.2
850.0
80.7
—
—
—
-263.5
—
Nutrition Programs Administration
164.7
155.9
—
155.3
—
—
—
-0.6
—
Under Secretary
0.8
0.8
—
0.8
—
—
—
+0.0
—
Subtotal, Title IV

Discretionary
6,620.3
6,566.0
1,350.0
5,700.7
—
—
—
-865.3
—
Mandatory (M)
96,560.0
91,436.3
24,710.0
93,309.8
—
—
—
+1,873.5
—
Subtotal
103,180.3
98,002.3
26,060.0
99,010.5
—
—
—
+1,008.2
—
Title V. Foreign Assistance

Foreign Agricultural Service
213.9
215.5
4.0
193.7
—
—
—
-21.8
—
Food for Peace Title II, and admin. expenses
1,500.1g
1,725.1
—
0.1
—
—
—
-1,725.0
—
McGovern-Dole Food for Education
210.3
220.0
—
0.0
—
—
—
-220.0
—
CCC Export Loan Salaries
8.8
6.4
—
6.4
—
—
—
+0.0
—
Office of Codex Alimentarius
4.0
4.8
—
4.8
—
—
—
+0.0
—
Under Secretary
0.9
0.9
—
0.9
—
—
—
+0.0
—
Subtotal, Title V
1,938.0
2,172.7
4.0
205.9
—
—
—
-1,966.8
—
CRS-14

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FY2019
FY2020
FY2021
Change: FY2020 to...

P.L. 116-
COVID-
Admin.
Admin.
Agency or major program
P.L. 116-6 94
19 Actsa
requestb
House
Senate
Enacted
request
House
Title VI. Related Agencies

Food and Drug Administration
3,080.5
3,171.5
163.0
3,220.4
—
—
—
+48.9
—
Commodity Futures Trading Commissionk
[268.0]
315.0
—
226.5
—
—
—
-88.5
—
Subtotal, Title VI
[3,348.5]
3,486.5
163.0
3,446.9
—
—
—
-39.6
—
Title VII. General Provisions

Changes in Mandatory Programs, CHIMPSl

a. Conservation programs
[-60.2]m
-60.2
—
-60.2
—
—
—
+0.0
—
b. Nutrition programs
+5.0
+9.0
—
—
—
—
—
-9.0
—
c. Farm Production & Conservation Bus. Ctr.
[+60.2]m
+60.2
—
+60.2
—
—
—
+0.0
—
d. Other CHIMPS and mandatory rescissions
+10.0
—
—
—
—
—
—
—
—
Subtotal, CHIMPS (Table B-1)
+15.0
+9.0
—
+0.0
—
—
—
-9.0
—
Rescissions (discretionary)n (Table B-2)
-505.0
-1,015.1
—
-1,200.0
—
—
—
-184.9
—
Other appropriations (Table B-3)

a. Emergency/disaster programs
—
535.0o
—
—
—
—
—
-535.0
—
b. Water and Waste Water
75.0
—
—
—
—
—
—
—
—
c. Broadband piloth
125.0
300.0
100.0
—h
—
—
—
-300.0
—
d. Food for Peace
216.0
—
—
—
—
—
—
—
—
e. Coronavirus Food Assistance Program
—
—
12,500.0p
—
—
—
—
—
—
f. Other appropriations
77.5
140.3
—
—
—
—
—
-140.3
—
Subtotal, Other appropriations
493.5
975.3
12,600.0
0.0
—
—
—
-975.3
—
Subtotal, Title VII
3.5
-30.8
12,600.0
-1,200.0
—
—
—
-1,169.2
—
CRS-15

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FY2019
FY2020
FY2021
Change: FY2020 to...

P.L. 116-
COVID-
Admin.
Admin.
Agency or major program
P.L. 116-6 94
19 Actsa
requestb
House
Senate
Enacted
request
House
Scorekeeping Adjustmentsq (Table B-4)

Emergency declaration in this bil
—
-535.0o
—a
—
—
—
—
+535.0
—
Other scorekeeping adjustments
-404.0
-398.0
—
-403.0
—
—
—
-5.0
—
Subtotal, Scorekeeping adjustmentsq
-404.0
-933.0
—
-403.0
—
—
—
+530.0
—
Totals

Discretionary: Senate basis w/o CFTCk
23,032.7 [23,169.1]
14,299.3
19,701.3
—
—
—
-3,467.9
—
Discretionary: House basis w/ CFTCk
[23,300.7]
23,484.1
14,299.3
19,927.8
—
—
—
-3,556.4
—
Mandatory (M)
128,755.1
129,108.8
38,710.0
129,010.4
—
—
—
-98.4
—
Total: Senate basis w/o CFTC
151,787.8 [152,278.0]
53,009.3
148,711.7
—
—
—
-3,566.3
—
Total: House basis w/ CFTC
[152,055.8]
152,593.0
53,009.3
148,938.2
—
—
—
-3,654.8
—
Source: CRS, using appropriations text and reports; unpublished CBO tables; OMB FY2021 Budget of the U.S. Government, Appendix; and USDA FY2020 Budget
Explanatory Notes.
Notes: Amounts are nominal discretionary budget authority in mil ions of dol ars unless labeled otherwise. “(M)” indicates that the account is mandatory authority (or
primarily mandatory authority). Bracketed amounts are not in the official totals due to differing House-Senate jurisdiction for CFTC but are shown for comparison.
a. Total from four coronavirus supplemental appropriations acts (P.L. 116-123, P.L. 116-127, P.L. 116-136, P.L. 116-139), all of which was emergency spending.
Although amounts were not designated as mandatory, they are grouped here for comparison to accounts that are in the annual appropriations. See detail in CRS In
Focus IF11491, Supplemental Appropriations for Agriculture and Related Agencies Due to COVID-19.
b. The request is based on current law and does not reflect the Administration’s various legislative proposals.
c. Includes regular FSA salaries and expenses plus transfers for farm loan program salaries and administrative expenses. Also includes farm loan program loan subsidy,
State Mediation Grants, Dairy Indemnity Program (mandatory funding), and Grassroots Source Water Protection Program. Does not include appropriations to the
Foreign Agricultural Service for export loans and P.L. 480 administration that are transferred to FSA.
d. Loan authority is the amount of loans that can be made or guaranteed with a loan subsidy. This amount is not added in the budget authority subtotals or totals.
e. The CARES Act (P.L. 116-136) provided $14 bil ion of reimbursement to the CCC after a June 2020 financial statement. Although it is not budget authority for
direct coronavirus support and not counted in CARES Act accounting, it is comparable to the CCC reimbursement in regular annual appropriations.
f.
Rural Development salaries and expenses include a base amount plus transfers from the three rural development agencies. Amounts presented for the agencies
therefore include program funds for loans and grants.
g. Excludes a portion of the other appropriations that are provided separately in General Provisions (see Table B-3).
CRS-16

link to page 28
h. The ReConnect Broadband Pilot Program that was created in the FY2018 appropriation has been funded by separate appropriation in the General Provisions title. In
FY2019 and FY2020 it is augmented by a transfer from the Cushion of Credit account that is available outside the appropriations caps. For example, in FY2020,
appropriators direct $555 mil ion to ReConnect from $300 mil ion appropriated in General Provisions and $255 mil ion from the Cushion of Credit account. For
FY2021, the Administration requests $250 mil ion in the Rural Utilities Service account rather than through General Provisions.
i.
The USDA-initiated reorganization in 2017 created an “Assistant to the Secretary for Rural Development” as part of the Office of the Secretary rather than the
previously Senate-confirmed undersecretary position. The 2018 farm bil reinstated the undersecretary position, and the FY2020 appropriation funds it as such.
j.
In addition to the specified supplemental amounts for the SNAP account in the CARES Act (P.L. 116-136), the Families First Coronavirus Response Act (P.L. 116-
127, §1101) authorized and appropriated open-ended funding for the Pandemic Electronic Benefit Transfer (P-EBT) program. The amount displayed does not include
the P-EBT funding.
k. Jurisdiction for the Commodity Futures Trading Commission (CFTC) is in the House Agriculture Appropriations Subcommittee and the Senate Financial Services
Appropriations Subcommittee. After FY2008, CFTC is carried in the enacted Agriculture appropriations in even-numbered fiscal years. It is always carried in House
Agriculture subcommittee markup but never in Senate Agriculture subcommittee markup. Bracketed amounts are not in the Agriculture appropriations totals due
to differing House-Senate jurisdiction for CFTC but are shown for comparison.
l.
Includes reductions (limitations and rescissions) and increases to mandatory programs that are known as CHIMPS.
m. These bracketed amounts were not in the official CBO scoring of CHIMPS. Appropriations acts in FY2018 and FY2019 transferred mandatory conservation funding
into the Farm Production and Conservation Business Center, but the official CBO scoring of appropriations at that time did not record it as a CHIMP the way that
the FY2020 scoring reflects. For more background, see CRS Report R46011, FY2020 Appropriations for Agricultural Conservation.
n. Rescissions are actions that permanently reduce a budget authority subsequent to an enacted appropriation. They score budgetary savings. Any rescissions from
mandatory programs are included with the CHIMPS.
o. Emergency appropriations in FY2020 include $535 mil ion for Ebola and $1.5 bil ion for the Wildfires and Hurricane Indemnity Program, which was offset with $1.5
bil ion in rescissions (Table B-3).
p. Includes $9.5 bil ion specified in the CARES Act for payments to farmers and $3 bil ion from indefinite authority in the Families First Coronavirus Relief Act that
USDA used for the Farmers to Families Food Boxes Program.
q. “Scorekeeping adjustments” are not necessarily appropriated items and may not be shown in Appropriations Committee tables but are part of the official CBO
score (accounting) of the bil . They predominantly include “negative subsidies” in loan program accounts (mostly from receipt of fees) and adjustments for
emergency designations in the bil .

CRS-17

Agriculture and Related Agencies: FY2021 Appropriations

Other Appropriations Issues
Policy-Related Provisions
Besides setting spending authority, appropriations acts are also a vehicle for policy-related
provisions that direct executive branch actions.29 These provisions, limitations, or riders may have
the force of law if they are included in the act’s text, but their effect is generally limited to the
current fiscal year unless they amend the U.S. Code, which is rare in appropriations acts.
Report language may also provide policy instructions. Although report language does not carry
the force of text in an act, it often explains congressional intent, which the agencies may be
expected to follow.
In the past, Congress has said that committee reports and the joint explanatory statement need to
be read together to capture all of the congressional intent for a fiscal year. For example, the
explanatory statement for the FY2020 Further Consolidated Appropriations act instructs that the
earlier House and Senate reports should be read together with the conference agreement:
Congressional Directives. The statement is silent on provisions that were in both the
House Report (H.Rept. 116-107) and Senate Report (S.Rept. 116-110) that remain
unchanged by this agreement, except as noted in this statement.
The House and Senate report language that is not changed by the statement is approved
and indicates congressional intentions. The statement, while repeating some report
language for emphasis, does not intend to negate the language referred to above unless
expressly provided herein.30
COVID-19 Supplemental Appropriations in FY2020
In March and April 2020, Congress passed and the President signed four supplemental
appropriations acts in response to the novel coronavirus pandemic—designated Coronavirus
Disease 2019, or COVID-19.31 These acts in FY2020 include support for programs in the
jurisdiction of the Agriculture appropriations subcommittees. The four acts are:
1. Coronavirus Preparedness and Response Supplemental Appropriations Act (P.L.
116-123, March 6, 2020);
2. Families First Coronavirus Response Act (P.L. 116-127, March 18, 2020);
3. CARES Act (P.L. 116-136, March 27, 2020); and
4. Paycheck Protection Program and Health Care Enhancement Act (P.L. 116-139,
April 27, 2020).
These acts together specify $36 billion of appropriations to programs in the jurisdiction of the
Agriculture appropriations subcommittees. In addition, the second act authorized indefinite
funding for commodity food assistance, from which the USDA has announced that it would
obligate $3 billion to date.32 The third act provided for $14 billion of reimbursement for the CCC

29 See CRS Report RL30240, Congressional Oversight Manual.
30 U.S. Congress, House Committee on Appropriations, Further Consolidated Appropriations Act, 2020, committee
print, 116th Cong., 2nd Sess., January 2020, 38-679 (Washington, DC: GPO, 2020), p. 305.
31 CRS In Focus IF11491, Supplemental Appropriations for Agriculture and Related Agencies Due to COVID-19.
32 The Farmers to Families Food Box Program, discussed in CRS Report R46347, COVID-19, U.S. Agriculture, and
USDA’s Coronavirus Food Assistance Program (CFAP).
Congressional Research Service
18

link to page 7 link to page 17 link to page 32 Agriculture and Related Agencies: FY2021 Appropriations

that, while not immediately available for obligation and not counted as COVID-19 relief, is
comparable to the regular CCC reimbursements in annual Agriculture appropriations acts and is
included in this report.
Columns labeled “COVID-19 Acts” in Table 2, Table 3, and other appendix tables summarize
these combined $53 billion of appropriations through the coronavirus supplemental acts. All of
this spending is designated as emergency spending and not counted against budget caps.
Budget Sequestration Continues on Mandatory Spending
Sequestration is a process to reduce federal spending through automatic, largely across-the-board
reductions that permanently cancel budget authority. Sequestration is triggered as a budget
enforcement mechanism when federal spending exceeds statutory budget goals.
Despite the BBA agreements that have raised discretionary spending caps to avoid sequestration
on discretionary accounts, sequestration still impacts mandatory spending. Sequestration on
mandatory accounts began in FY2013 and continues to the present. Congress has amended the
BCA five times to extend sequestration on mandatory spending accounts. The original sunset of
sequestration was to be FY2021; it is now scheduled to continue through FY2029. Sequestration
has reduced mandatory spending by about 6% per year, amounting to about $1.5 billion of
reductions annually from agriculture accounts in recent years. See Appendix C for effects.

Congressional Research Service
19

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Appendix A. Appropriations in Administrative Accounts
Table A-1. USDA Departmental Administration Appropriations
Budget authority in millions of dollars
FY2019
FY2020
FY2021
Change: FY2020 to...

P.L. 116-
COVID-
Admin.
Admin.
Agency or major program
P.L. 116-6 94
19 Acts
request
House
Senate
Enacted
request
House
Office of the Secretary

Office of the Secretary
5.1
5.1
—
5.1
—
—
—
+0.1
—
Assistant to the Sec. for Rural Developmenta
0.8
—
—
—
—
—
—
—
—
Office of Homeland Security
1.5
1.5
—
1.3
—
—
—
-0.2
—
Public Partnership and Engagementb
4.7
6.2
—
2.0
—
—
—
-4.3
—
Assistant Secretary for Admin.
0.9
0.9
—
0.9
—
—
—
+0.0
—
Departmental Administration
22.3
21.4
—
27.2
—
—
—
+5.8
—
Asst. Sec. Congressional Relations
3.9
3.9
—
3.9
—
—
—
+0.1
—
Office of Communications
7.5
7.3
—
7.4
—
—
—
+0.1
—
Subtotal
46.6
46.1
—
47.9
—
—
—
+1.7
—
Executive Operations

Office of Chief Economist
21.3
24.0
—
20.9
—
—
—
-3.2
—
Office of Hearings and Appeals
15.2
15.2
—
15.5
—
—
—
+0.3
—
Office of Budget, Program Analysis
9.5
9.5
—
20.7
—
—
—
+11.1
—
Subtotal
46.0
48.8
—
57.1
—
—
—
+8.3
—
Other Administration

Chief Information Officer
55.6
66.6
—
142.8
—
—
—
+76.2
—
Chief Financial Officer
6.0
6.0
—
11.1
—
—
—
+5.1
—
CRS-20

FY2019
FY2020
FY2021
Change: FY2020 to...

P.L. 116-
COVID-
Admin.
Admin.
Agency or major program
P.L. 116-6 94
19 Acts
request
House
Senate
Enacted
request
House
Assistant Secretary for Civil Rights
0.9
0.9
—
0.9
—
—
—
+0.0
—
Office of Civil Rights
24.2
24.2
—
20.6
—
—
—
-3.6
—
Buildings and facilities
60.0
128.2
—
152.8
—
—
—
+24.6
—
Office of Safety, Security, and Protection
—
—
—
25.0
—
—
—
+25.0
—
Hazardous materials management
3.5
4.5
—
3.5
—
—
—
-1.0
—
Office of Inspector General
98.2
98.2
—
100.4
—
—
—
+2.2
—
General Counsel
45.1
45.1
0.8
45.9
—
—
—
+0.7
—
Office of Information Affairs
—
—
—
2.5
—
—
—
+2.5
—
Office of Ethics
4.1
4.1
—
4.2
—
—
—
+0.1
—
Subtotal
297.7
377.9
0.8
509.8
—
—
—
+131.9
—
Total, Departmental Administration
390.4
472.8
0.8
614.7
—
—
—
+141.9
—
Source: CRS, using appropriations text and reports; unpublished CBO tables; OMB FY2021 Budget of the U.S. Government, Appendix; and USDA FY2020 Budget
Explanatory Notes.
a. The USDA-initiated reorganization in 2017 created an “Assistant to the Secretary for Rural Development” as part of the Office of the Secretary rather than the
previously Senate-confirmed undersecretary position. The 2018 farm bil reinstated the undersecretary position, and the FY2020 appropriation funds it as such.
b. Formerly, this was the Office of Advocacy and Outreach.
CRS-21

link to page 27 link to page 27
Appendix B. Appropriations in General Provisions
Table B-1. General Provisions: Changes in Mandatory Program Spending (CHIMPS)
Budget authority in millions of dollars
FY2019
FY2020
FY2021
Change: FY2020 to...

P.L. 116-
COVID-
Admin.
Admin.
CHIMPS and mandatory rescissions
P.L. 116-6
94
19 Acts
request
House
Senate
Enacted
request
House
Farm bill programs

Farm Security Rural Investment Act
conservation programs
[-60.2]0
-60.2
—
-60.2
—
—
—
+0.0
—
Farm to School
+5.0
+9.0
—
0.0
—
—
—
-9.0
—
Subtotal, farm bill programs
+5.0
-51.2
—
-60.2
—
—
—
-9.0
—
Other CHIMPS

Farm Production & Conservation (FPAC)
Business Center
[+60.2]0
+60.2
—
+60.2
—
—
—
+0.0
—
Food for Progress
+10.0
—
—
—
—
—
—
—
—
Total CHIMPS
+15.0
+9.0
—
+0.0
—
—
—
-9.0
—
Source: CRS, using appropriations text and reports; unpublished CBO tables; OMB FY2021 Budget of the U.S. Government, Appendix; and USDA FY2020 Budget
Explanatory Notes.
Note:
a. Amounts in brackets were not in the official CBO scoring of CHIMPS. The FY2019 appropriations act transferred mandatory conservation funding into the Farm
Production and Conservation Business Center, but the official CBO scoring of appropriations at that time did not record it as a CHIMP the way that the FY2020
scoring reflects. For more background, see CRS Report R46011, FY2020 Appropriations for Agricultural Conservation.
CRS-22

link to page 30
Table B-2. General Provisions: Rescissions from Discretionary Accounts
Budget authority in millions of dollars
FY2019
FY2020
FY2021
Change: FY2020 to...

P.L. 116-
COVID-
Admin.
Admin.
Rescissions from discretionary accounts
P.L. 116-6 94
19 Acts
request
House
Senate
Enacted
request
House
Special Supplemental Nutrition Program for
Women, Infants, and Children
-500.0
-1,000.0
—
-1,200.0
—
—
—
-200.0
—
Electric loan refinancing
—
-15.1
—
—
—
—
—
+15.1
—
USDA unobligated balances
-5.0
—
—
—
—
—
—
—
—
Total
-505.0
-1,015.1
—
-1,200.0
—
—
—
-184.9
—
Source: CRS, using appropriations text and reports; unpublished CBO tables; OMB FY2021 Budget of the U.S. Government, Appendix; and USDA FY2020 Budget
Explanatory Notes.
Table B-3. General Provisions: Other Appropriations
Budget authority in millions of dollars
FY2019
FY2020
FY2021
Change: FY2020 to...

P.L. 116-
COVID-
Admin.
Admin.
Program
P.L. 116-6
94
19 Acts
request
House
Senate
Enacted
request
House
FDA buildings and facilities
—
20.0
—
—
—
—
—
-20.0
—
Coronavirus Food Assistance Program
—
—
12,500.0a
—
—
—
—
—
—
Agriculture Risk Coverage pilot
5.0
—
—
—
—
—
—
—
—
Dairy Innovation
—
20.0
—
—
—
—
—
-20.0
—
Mitigation banking
—
5.0
—
—
—
—
—
-5.0
—
Conservation Reserve Program pilot
1.0
1.0
—
—
—
—
—
-1.0
—
Citrus greening
8.5
8.5
—
—
—
—
—
-8.5
—
Protecting Animals with Shelter Grants
—
2.0
—
—
—
—
—
-2.0
—
Fruit fly quarantine payments
9.0
—
—
—
—
—
—
—
—
CRS-23

link to page 30 link to page 30
FY2019
FY2020
FY2021
Change: FY2020 to...

P.L. 116-
COVID-
Admin.
Admin.
Program
P.L. 116-6
94
19 Acts
request
House
Senate
Enacted
request
House
Geographically disadvantaged farmers
2.0
2.0
—
—
—
—
—
-2.0
—
Farming Opportunities Training and Outreach
—
5.0
—
—
—
—
—
-5.0
—
Water Bank
4.0
4.0
—
—
—
—
—
-4.0
—
Rural Energy Savings Program
10.0
12.0
—
—
—
—
—
-12.0
—
Maturing mortgage pilot
1.0
1.0
—
—
—
—
—
-1.0
—
Rural microentrepreneur assistance program
3.0
—
—
—
—
—
—
—
—
Water and Waste Water
75.0
—
—
—
—
—
—
—
—
Waste water pilot
—
5.0
—
—
—
—
—
-5.0
—
Broadband pilotb
125.0
300.0
100.0
—b
—
—
—
-300.0
—
Distance Learning Telemedicine
16.0
—
—
—
—
—
—
—
—
Rural Hospital Technical Assistance
—
1.0
—
—
—
—
—
-1.0
—
Tribal Demonstration Projects
—
3.0
—
—
—
—
—
-3.0
—
Healthy Food Financing Initiative
2.0
5.0
—
—
—
—
—
-5.0
—
Healthy Fluid Milk
—
1.0
—
—
—
—
—
-1.0
—
RISE grants
—
5.0
—
—
—
—
—
-5.0
—
NIFA military veterans grants
5.0
5.0
—
—
—
—
—
-5.0
—
Genome to Phenome
—
1.0
—
—
—
—
—
-1.0
—
NIFA 1890 land grants, Centers of Excellence
5.0
6.0
—
—
—
—
—
-6.0
—
Tribal Student Scholarships
—
5.0
—
—
—
—
—
-5.0
—
International Agriculture Education
—
1.0
—
—
—
—
—
-1.0
—
Pol inator Research Coordinator
—
0.4
—
—
—
—
—
-0.4
—
Urban Agriculture Office
—
5.0
—
—
—
—
—
-5.0
—
Food Loss Liaison
—
0.4
—
—
—
—
—
-0.4
—
CRS-24

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FY2019
FY2020
FY2021
Change: FY2020 to...

P.L. 116-
COVID-
Admin.
Admin.
Program
P.L. 116-6
94
19 Acts
request
House
Senate
Enacted
request
House
Food for Peace
216.0
—
—
—
—
—
—
—
—
Food for Progress
6.0
—
—
—
—
—
—
—
—
Nutrition Assistance Program Study
—
6.0
—
—
—
—
—
-6.0
—
Micro-grants for Food Security
—
5.0
—
—
—
—
—
-5.0
—
School breakfast expansion
—
5.0
—
—
—
—
—
-5.0
—
Subtotal, other spending provisions
493.5
440.3
12,600.0
—
—
—
—
-440.3
—
Disaster/Emergency programs

Ebola prevention and treatment
—
+535.0
—
—
—
—
—
—
—
Rescission of unobligated emergency funding
—
-1,500.0
—
—
—
—
—
—
—
WHIP (Wildfire, Hurricanes Indemnity Program)
—
+1,500.0
—
—
—
—
—
—
—
Subtotal, disaster/emergency programs
—
+535.0c
—
—
—
—
—
—
—
Total
493.5
975.3c
12,600.0
0.0
—
—
—
-975.3
—
Source: CRS, using appropriations text and reports; unpublished CBO tables; OMB FY2021 Budget of the U.S. Government, Appendix; and USDA FY2020 Budget
Explanatory Notes.
Note: Excludes supplemental appropriations outside the annual appropriations act.
a. Includes $9.5 bil ion specified in the CARES Act for payments to farmers and $3 bil ion from indefinite authority in the Families First Coronavirus Relief Act that
USDA used for the Farmers to Families Food Boxes Program.
b. The ReConnect Broadband Pilot Program that was created in the FY2018 appropriation has been funded by separate appropriation in the General Provisions title. In
FY2019 and FY2020 it is augmented by a transfer from the Cushion of Credit account that is available outside the appropriations caps. For example, in FY2020,
appropriators direct $555 mil ion to ReConnect from $300 mil ion appropriated in General Provisions and $255 mil ion from the Cushion of Credit account. For
FY2021, the Administration requests $250 mil ion in the Rural Utilities Service account rather than through General Provisions.
c. Appropriations designated as emergency spending in FY2020 and are not counted against the discretionary spending limit include $535 mil ion for Ebola and $1.5
bil ion for WHIP, which was offset with $1.5 bil ion in rescissions (see Table B-4).
CRS-25

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Table B-4. General Provisions: Scorekeeping Adjustments
Budget authority in millions of dollars
FY2019
FY2020
FY2021
Change: FY2020 to...

P.L. 116-
COVID-
Admin.
Admin.
Scorekeeping adjustment
P.L. 116-6
94
19 Acts
requesta
House
Senate
Enacted
request
House
Loan program negative subsidies

Rural housing negative subsidy
-135.0
-125.0
—
-125.0
—
—
—
+0.0
—
Rural community facilities negative subsidy
-72.0
-72.0
—
-72.0
—
—
—
+0.0
—
Rural elec. & tele. loan negative subsidy
-173.0
-176.0
—
-176.0
—
—
—
+0.0
—
Rural water & waste loan negative subsidy
-2.0
-3.0
—
-3.0
—
—
—
+0.0
—
Ag credit loan negative subsidy
-23.0
-23.0
—
-23.0
—
—
—
+0.0
—
Subtotal, negative subsidies
-405.0
-399.0
—
-399.0
—
—
—
+0.0
—
Denali Commission
—
—
—
-4.0
—
—
—
-4.0
—
Child nutrition equipment grants
1.0
1.0
—
—
—
—
—
-1.0
—
Emergency designations not counted in allocation
—
-535.0b
—c
—
—
—
—
+535.0
—
Total
-404.0
-933.0
—
-403.0
—
—
—
+530.0
—
Source: CRS, using appropriations text and reports; unpublished CBO tables; OMB FY2021 Budget of the U.S. Government, Appendix; and USDA FY2020 Budget
Explanatory Notes.
Notes: A negative subsidy for a loan program generally occurs when the interest rate and/or fees charged to the borrowers are more than sufficient to cover the costs
of the risk of default (Government Accountability Office, “Credit Reform: Current Method to Estimate Credit Subsidy Costs Is More Appropriate for Budget Estimates
Than a Fair Value Approach,” GAO-16-41, January 2016, p. 8).
a. The Administration’s request does not specify the negative subsidies for the loan programs. This table assumes continuation of amounts in FY2020 pending CBO
scorekeeping that wil accompany FY2021 House and Senate markup.
b. Appropriations designated as emergency spending in FY2020 include $535 mil ion for Ebola and $1.5 bil ion for the Wildfires and Hurricane Indemnity Program,
which was offset with $1.5 bil ion in rescissions of prior-year emergency appropriations (see Table B-3).
c. Amounts in the coronavirus supplemental appropriations acts were all designated as emergency spending and are not noted further here because the acts faced no
budget constraint.

CRS-26

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Appendix C. Budget Sequestration
Sequestration is a process to reduce federal spending through automatic, largely across-the-board
reductions that permanently cancel mandatory and/or discretionary budget authority.33 A
sequestration rate is the percentage reduction that is subtracted from an appropriated budget
authority to achieve an intended budget goal.
Sequestration is triggered as a budget enforcement mechanism when federal spending exceeds
statutory budget goals.34 Sequestration is currently authorized by the Budget Control Act (BCA,
P.L. 112-25). For discretionary accounts, sequestration continues through FY2021. For mandatory
accounts, Congress amended the BCA to continue sequestration through FY2029.
OMB computes sequestration rates annually. Table C-1 shows the rates of sequestration that have
been announced and the total amounts of budget authority that have been cancelled from accounts
in Agriculture appropriations.
Table C-1. Summary of Sequestration on Agriculture Accounts
(million dollars)
Budget
Authority
Sequestered
Sequestration
Subject to
Budget
Fiscal Year
Ratea
Sequestrationb
Authorityb

Discretionary Spending
2013
5.0%
23,064
1,153

Mandatory Spending
2013
5.1%
13,987
713
2014
7.2%
14,610
1,052
2015
7.3%
15,795
1,153
2016
6.8%
26,748
1,819
2017
6.9%
24,429
1,686
2018
6.6%
19,938
1,316
2019
6.2%
24,682
1,530
2020
5.9%
23,352
1,378
2021
5.7%
29,841
1,701
Source: CRS, compiled from OMB, Reports to the Congress on the Joint Committee Reductions, various fiscal years.
Available for FY2018-FY2021 at https://www.whitehouse.gov/omb/legislative/sequestration-reports-orders and
for FY2013-FY2017 at https://obamawhitehouse.archives.gov/omb/legislative_reports/sequestration.
a. Sequestration rates listed here are for nonexempt, nondefense accounts as determined by OMB.
b. Totals are computed by CRS for accounts and programs that are in the jurisdiction of Agriculture
appropriations.

33 CRS Report R43411, The Budget Control Act of 2011: Legislative Changes to the Law and Their Budgetary Effects.
34 CRS Report R42972, Sequestration as a Budget Enforcement Process: Frequently Asked Questions.
Congressional Research Service
27

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Discretionary Spending
For discretionary spending, sequestration is authorized through FY2021 if discretionary defense
and nondefense spending exceed caps that are specified in statute (2 U.S.C. §901(c)).
In FY2013, the timing of the appropriations acts and the first year of sequestration resulted in
triggering sequestration on discretionary spending.
In FY2014-FY2020, BBAs in 2013, 2015, 2018, and 2019 (P.L. 113-67, P.L. 114-74, P.L. 115-
123, and P.L. 116-37, respectively) have avoided sequestration on discretionary spending. These
BBAs raised the discretionary budget caps that were placed in statute by the BCA and allowed
Congress to enact larger appropriations than would have been allowed. The enacted
appropriations in FY2014-FY2020 met the spending limitations of the revised budget caps, and
therefore no sequestration on discretionary accounts was necessary.
For FY2021, the BBA of 2019 (P.L. 116-37) similarly provides a higher discretionary cap that
may avoid sequestration (see “Budget Caps, Subcommittee Allocations”).35
Mandatory Spending
Sequestration Occurs and Continues
For mandatory spending, sequestration is presently authorized and scheduled to continue through
FY2029, having been amended and extended by budget acts that were subsequent to the BCA (2
U.S.C. §901a(6)). That is, sequestration of mandatory spending has not been avoided by the
BBAs and continues to apply annually to certain accounts.
The original FY2021 sunset on the sequestration of mandatory accounts has been extended five
times as an offset to pay for raising the caps on discretionary spending to avoid sequestration in
the near term (or as a general budgetary offset for other authorization acts):
1. Congress extended the duration of mandatory sequestration by two years (until
FY2023) as an offset in BBA 2013.36
2. Congress extended it by another year (until FY2024) to maintain retirement
benefits for certain military personnel (P.L. 113-82).
3. Congress extended sequestration on nonexempt mandatory accounts another year
(until FY2025) as an offset in BBA 2015.37
4. Congress extended sequestration on nonexempt mandatory accounts for two
years (until FY2027) as an offset in BBA 2018 (P.L. 115-123, §30101(c)).38
5. Congress extended sequestration on nonexempt mandatory accounts by another
two years (until FY2029) as an offset in BBA 2019 (P.L. 116-37, §402).39

35 CRS Insight IN11148, The Bipartisan Budget Act of 2019: Changes to the BCA and Debt Limit.
36 CBO, Bipartisan Budget Act of 2013, December 11, 2013, https://www.cbo.gov/publication/44964.
37 CBO, Bipartisan Budget Act of 2015, October 28, 2015, https://www.cbo.gov/publication/50938. In addition to
extending sequestration and related to mandatory spending in agriculture, crop insurance was used as an additional
budgetary offset in BBA 2015. The effect was temporary, however, and the crop insurance reduction was restored. For
more background, see the section on crop insurance and the Standard Reinsurance Agreement in CRS Report R44240,
Agriculture and Related Agencies: FY2016 Appropriations.
38 CBO, Bipartisan Budget Act of 2018, February 8, 2018, https://www.cbo.gov/publication/53556.
39 CBO, Bipartisan Budget Act of 2019, July 23, 2019, https://www.cbo.gov/publication/55478.
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Exemptions from Sequestration
Some USDA mandatory programs are statutorily exempt from sequestration. Those expressly
exempt by statute are the nutrition programs (SNAP, the child nutrition programs, and the
Commodity Supplemental Food Program)40 and the Conservation Reserve Program.41 Some prior
legal obligations in the Federal Crop Insurance Corporation42 and the farm commodity programs
may be exempt43 as determined by OMB.44
Generally speaking, the experience since FY2013 is that OMB has ruled that most of crop
insurance is exempt from sequestration, while the farm commodity programs, disaster assistance,
and most conservation programs have been subject to it.45
Implementation of Sequestration
Nonexempt mandatory spending in FY2021 is to be reduced by a 5.7% sequestration rate (Table
C-1) and thus would be paid at 94.3% of what would otherwise have been provided. This is
projected to result in a reduction of about $1.7 billion from mandatory agriculture accounts in
FY2021, including over $1.3 billion from the CCC that has $23 billion of budget authority
subject to sequestration.
For example, for the farm commodity programs that support farm income such as the Agricultural
Risk Coverage and Price Loss Coverage programs,46 payments to farmers are computed by a
regular formula authorized in the farm bill, and the final actual payment to the farmer is reduced
by the sequestration rate. For programs that operate on a fixed budget authority, such as the
Environmental Quality Incentives Program and the Market Assistance Program, the sequestration
rate is applied to the available budget authority for the fiscal year.

40 2 U.S.C. §905(h).
41 2 U.S.C. §905(g)(1)(A).
42 2 U.S.C. §905(g)(2).
43 2 U.S.C. §906(j).
44 Some administrative expenses may be subject to sequestration, and therefore programs that are otherwise exempt
may have a relatively small sequestration-eligible amount compared to their total budget authority. This has been the
case for the Federal Crop Insurance Corporation, SNAP, child nutrition programs, and WIC.
45 CRS Report R42050, Budget “Sequestration” and Selected Program Exemptions and Special Rules.
46 CRS In Focus IF11161, 2018 Farm Bill Primer: ARC and PLC Support Programs.
Congressional Research Service
29

Agriculture and Related Agencies: FY2021 Appropriations

Appendix D. Action on Agriculture Appropriations,
FY1996-FY2021
Table D-1. Congressional Action on Agriculture Appropriations Since FY1996

House Action
Senate Action
Final Appropriation

Fiscal
CRS
Year
Subcmte.
Cmte.
Floor
Subcmte.
Cmte.
Floor
Enacted
Public Law
Report
1996
6/14/1995
6/27/1995
7/21/1995
9/13/1995
9/14/1995
9/20/1995
10/21/1995
E P.L. 104-37
95-624
1997
5/30/1996
6/6/1996
6/12/1996
7/10/1996
7/11/1996
7/24/1996
8/6/1996
E P.L. 104-180
IB96015
1998
6/25/1997
7/14/1997
7/24/1997
7/15/1997
7/17/1997
7/24/1997
11/18/1997
E P.L. 105-86
97-201
1999
6/10/1998
6/16/1998
6/24/1998
6/9/1998
6/11/1998
7/16/1998
10/21/1998 O P.L. 105-277
98-201
2000
5/13/1999
5/24/1999
6/8/1999
6/15/1999
6/17/1999
8/4/1999
10/22/1999
E P.L. 106-78
RL30201
2001
5/4/2000
5/16/2000
7/11/2000
5/4/2000
5/10/2000
7/20/2000
10/28/2000
E P.L. 106-387
RL30501
2002
6/6/2001
6/27/2001
7/11/2001
Pol ed out
7/18/2001 10/25/2001 11/28/2001
E P.L. 107-76
RL31001
2003
6/26/2002
7/26/2002
—
7/23/2002
7/25/2002
—
2/20/2003
O P.L. 108-7
RL31301
2004
6/17/2003
7/9/2003
7/14/2003
7/17/2003
11/6/2003
11/6/2003
1/23/2004
O P.L. 108-199
RL31801
2005
6/14/2004
7/7/2004
7/13/2004
9/8/2004
9/14/2004
—
12/8/2004
O P.L. 108-447
RL32301
2006
5/16/2005
6/2/2005
6/8/2005
6/21/2005
6/27/2005
9/22/2005
11/10/2005
E P.L. 109-97
RL32904
2007
5/3/2006
5/9/2006
5/23/2006
6/20/2006
6/22/2006
—
2/15/2007
Y P.L. 110-5
RL33412
2008
7/12/2007
7/19/2007
8/2/2007
7/17/2007
7/19/2007
—
12/26/2007 O P.L. 110-161
RL34132
2009
6/19/2008
—
—
Pol ed out
7/17/2008
—
3/11/2009
O P.L. 111-8
R40000
2010
6/11/2009
6/18/2009
7/9/2009
Pol ed out
7/7/2009
8/4/2009
10/21/2009
E P.L. 111-80
R40721
2011
6/30/2010
—
—
Pol ed out
7/15/2010
—
4/15/2011
Y P.L. 112-10
R41475
2012
5/24/2011
5/31/2011
6/16/2011
Pol ed out
9/7/2011
11/1/2011
11/18/2011 O P.L. 112-55
R41964
2013
6/6/2012
6/19/2012
—
Pol ed out
4/26/2012
—
3/26/2013
O P.L. 113-6
R43110
2014
6/5/2013
6/13/2013
—
6/18/2013
6/20/2013
—
1/17/2014
O P.L. 113-76
R43110
2015
5/20/2014
5/29/2014
—
5/20/2014
5/22/2014
—
12/16/2014 O P.L. 113-235
R43669
2016
6/18/2015
7/8/2015
—
7/14/2015
7/16/2015
—
12/18/2015 O P.L. 114-113
R44240
2017
4/13/2016
4/19/2016
—
5/17/2016
5/19/2016
—
5/5/2017
O P.L. 115-31
R44588h
ttp://w
ww.crs
.gov/R
eports/
R4458
8
2018
6/28/2017
7/12/2017
9/14/2017
7/18/2017
7/20/2017
—
3/23/2018
O P.L. 115-141
R45128
2019
5/9/2018
5/16/2018
—
5/22/2018
5/24/2018
8/1/2018
2/15/2019
O P.L. 116-6
R45230
2020
5/23/2019
6/4/2019
6/25/2019
9/17/2019
9/19/2019 10/31/2019 12/20/2019 O P.L. 116-94
R45974
Congressional Research Service
30

Agriculture and Related Agencies: FY2021 Appropriations

House Action
Senate Action
Final Appropriation

Fiscal
CRS
Year
Subcmte.
Cmte.
Floor
Subcmte.
Cmte.
Floor
Enacted
Public Law
Report
2021
—
—
—
—
—
—
—
—
—
—
Source: CRS.
Notes: E = enacted as standalone appropriation (eight times over 25 years); O = omnibus appropriation (15
times); Y = year-long CR (two times). “Pol ed out” refers to a procedure that permits a Senate subcommittee to
transmit a bil to its ful committee without a formal markup session. See CRS Report RS22952, Proxy Voting and
Polling in Senate Committee.

Author Information

Jim Monke

Specialist in Agricultural Policy

Key Policy Staff
Area of Expertise
Name
Agricultural appropriations, USDA budget
Jim Monke
Agricultural Marketing Service
Joel Greene
Animal and Plant Health Inspection Service
Tadlock Cowan
Commodity Futures Trading Commission
Rena Mil er
Conservation
Megan Stubbs
Crop insurance
Randy Schnepf
Disaster assistance
Megan Stubbs
Farm Service Agency
Jim Monke
Food and Drug Administration
Agata Dabrowska
Food safety, generally
Renée Johnson
Food safety, meat and poultry inspection
Joel Greene
International food assistance
Alyssa Casey
Nutrition and domestic food assistance
Randy Alison Aussenberg
Kara Clifford Bil ings
Research and extension
Genevieve Croft
Rural development
Alyssa Casey
Trade
Anita Regmi
Congressional Research Service
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Agriculture and Related Agencies: FY2021 Appropriations

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Congressional Research Service
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