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June 9, 2021
1890 Land-Grant Universities: Background and Selected Issues
The 1890 Institutions are the historically Black colleges and
Grant Programs
universities (HBCUs) that belong to the U.S. land-grant
NIFA administers federal funds for LGUs through two
university (LGU) system. As such, they receive federal
primary grant types. NIFA distributes capacity grants, also
funds for agricultural research, education, and extension
known as formula funds, among eligible institutions based
through programs administered by the U.S. Department of
on statutory formulas . These grants generally require one-
Agriculture’s (USDA’s) National Institute of Food and
to-one nonfederal matching funds (provided by the state or
Agriculture (NIFA). States and territories provide required
other nonfederal sources). Recipient institutions develop
nonfederal matching funds for some of these programs .
Plans of Work (subject to approval by NIFA) and decide
Congress supports the 1890 Institutions and other LGUs
which of their own projects to support. NIFA awards
though appropriations, legislation, and oversight.
competitive grants directly to specific projects proposed by
eligible applicants and selected through a national peer-
Background
review process. Grants of either type may focus on
The U.S. LGU system—comprising the 1862 Institutions
agricultural research, education, extension, or some
(57 original LGUs), 1890 Institutions (19 HBCU LGUs),
combination of the three (integrated activities). Certain
and 1994 Institutions (35 Tribal LGUs)—is a partnership
grant programs are specific to particular LGU types, and
between the federal government and the states, with a
others are open to a variety of applicants. The text box on
threefold mission of teaching, research, and extension.
the next page provides more information on 1890
LGUs are present in all 50 states, the District of Columbia,
Institution programs.
and most U.S. territories . They originally focused on
agriculture and the mechanical arts and now engage in a
USDA Initiative
variety of academic disciplines.
In addition to grant programs established through
legislation, USDA has managed the USDA/1890 National
The Morrill Act of 1890 (26 Stat. 417; 7 U.S.C. §321 et
Scholars Program as a departmental initiative since 1992.
seq.) led to establishment of the 1890 Institutions. It
USDA partners with the 1890 Institutions to provide
provided funding for LGUs and prohibited racial
students of food, agriculture, and related disciplines with
discrimination in student admissions for recipient
scholarships and temporary USDA employment. USDA
institutions. The act considered compliant those states that
agencies provide work experience and pay students’ tuition
established separate institutions “of like character” for
and fees; the universities pay for room and board.
White and nonwhite students. The 19 1890 Institutions are
located in 18 states (Figure 1). Each has a college of
Considerations for Congress
agriculture and is eligible to receive funds under certain
Federal support of the colleges and universities that
NIFA programs. For funding purposes, Alabama’s two
comprise the LGU system has strengthened agricultural
1890 Institutions—Alabama A&M University and
research, education, and extension. Some argue that
Tuskegee University—are treated as though they are
differences in federal support for the 1862, 1890, and 1994
located in separate states.
Institutions constitute inequities that Congress may consider
Figure 1. Map of 1890 Institutions
addressing. Others may argue that institutional
differences—including the numbers of students served,
types of degrees awarded, and focal missions—should
factor into federal funding allocations and programmatic
decisions affecting the LGU system. NIFA programs
primarily support agriculture-related activities, and LGUs
derive financial support from other sources (e.g., other
federal programs, endowments, student tuition).
Federal Appropriations
The original LGUs receive the greatest proportion of
federal capacity funds specific to agricultural research and
extension, accounting for 82% of such funding in 2020 (see
Table 1 for details on included programs), followed by the
1890 (18%) and 1994 Institutions (0%). Although the 1862
Institutions are the most numerous and serve the greatest
number of students (Table 1), some argue that historical
funding for agricultural research and extension at the 1890
Source: Map created by CRS.
https://crsreports.congress.gov
1890 Land-Grant Universities: Background and Selected Issues
Institutions has been insufficient. They argue that such
matching funds by institution and grant program. These
funding should be increased.
reports publicly identify those institutions that received
waivers for particular capacity grant programs. However,
Table 1. Selected Aggregate Metrics by LGU Type
they do not distinguish between state appropriations and
those funds provided by other nonfederal sources. Congress
Metric
1862
1890
1994
may choose to consider whether this transparency
Number of Institutions
57
19
35
requirement is achieving its intended objectives.
Total Undergraduate Students 1,534,525
89,544 23,481
USDA Grants for 1890 Institutions
Total Graduate Students
446,014
14,734
273
Capacity Grants. NARETPA (P.L. 95-113, Title XIV)
Total Fed. Capacity Funding:
$574M
$124M
—
authorizes three capacity grants for the 1890 Institutions.
Research, Extension Programs
Congress provides annual appropriations for these programs.
Sources: 12-month (2019-2020) enrol ment data from National
For some, their funding authorization does not expire. For
Center for Education Statistics, Integrated Postsecondary Education
others, the 2018 farm bil (P.L. 115-334) authorizes annual
Data System. Funding totals from enacted FY2020 appropriations (P.L.
appropriations through FY2023. Enacted FY2021
116-94) include capacity programs for 1862 Institutions (Hatch,
Smith-Lever 3(b) and 3(c)); 1890 Institutions (Evans-Al en, NARETPA
appropriations (P.L. 116-260) are identified below.
Section 1444); and 1994 Institutions (no comparable programs).
NARETPA, §1444 (7 U.S.C. §3221) authorizes extension
Notes: Student totals do not indicate the subset of students that are
capacity grants. One-to-one matching funds are required,
engaged in agricultural disciplines, making it difficult to compare
and USDA may grant a waiver of up to 50% of the
overal support levels for these students. Access to funding sources
matching funds. FY2021 appropriations: $62 mil ion.
other than NIFA capacity grants may vary by institution type.
The Evans-Al en Act (NARETPA, §1445; 7 U.S.C. §3222)
authorizes research capacity grants. One-to-one
Shortly after the 1862 Institutions were established as
matching funds are required, and USDA may grant a
LGUs, Congress enacted legislation to provide them with
waiver of up to 50% of the matching funds. FY2021
annual capacity grants for research (Hatch Act of 1887, 7
appropriations: $73 mil ion.
U.S.C. §361a et seq.), followed by capacity grants for
extension in 1914 (Smith-Lever Act, 7 U.S.C. §341 et seq.).
The 1890 Facilities Grant Program (NARETPA, §1447; 7
U.S.C. §3222b) provides capacity grant funding to acquire
The 1890 Institutions were not eligible for these grants.
and improve agricultural and food science facilities and
Congress first authorized annual capacity grants specificaly
equipment. The 2018 farm bil (§7118) authorizes annual
for research and extension at the 1890 Institutions in the
appropriations of $25 mil ion. Matching funds are not
National Agricultural Research, Education, and Teaching
required. FY2021 appropriations: $21.5 mil ion.
Policy Act of 1977 (NARETPA). NARETPA originally
required these appropriations to equal not less than 15%
Competitive Grants. NARETPA and the 2018 farm bil
(research) and 4% (extension) of the capacity grant
authorize the fol owing competitive grants:
appropriations for 1862 Institutions. The 2008 farm bill
The 1890 Institutions Teaching, Research, and Extension
(P.L. 110-246) increased these requirements to 30%
Capacity Building Grants Program (NARETPA,
(research) and 20% (extension). Congress may choose to
§1417(b)(4); 7 U.S.C. §3152(b)(4)) provides grants to
consider whether allocated appropriations adequately
improve the 1890 Institutions’ capacity in food and
support the needs of the 1890 Institutions.
agricultural sciences. The provision’s broader mandate
Nonfederal Financial Support for 1890 Institutions
al ows USDA discretion to support particular institution
types—in this case, the 1890 Institutions. The 2018 farm
Incomplete state matching funds for federal capacity grants
bil authorizes annual appropriations of $40 mil ion.
to 1890 Institutions have been an ongoing concern for some
FY2021 appropriations: $26 mil ion.
observers because they reduce the total funding amounts
available to these institutions. Federal capacity grants for
The Centers of Excel ence (COE) at 1890 Institutions
provision of the 2018 farm bil (§7213; 7 U.S.C. §5926)
the LGU system generally require one-to-one nonfederal
cal s for USDA to fund at least three COE focused on
matching funds. These funds typically come from state-
specified areas related to food and agriculture. This
level appropriations, but they also can come from the
program supports prior COE established through a 2015
universities themselves or some other nonfederal entity.
USDA initiative commemorating the 125th anniversary of
Current law permits USDA to waive up to 50% of the
the Morril Act of 1890. The 2018 farm bil authorizes
matching requirements for 1890 Institutions if the state is
$10 mil ion in annual appropriations from FY2019 to
unlikely to provide sufficient funds. The law does not
FY2023. FY2021 appropriations: $10 mil ion.
permit waivers for most 1862 Institutions. Currently, all
states meet the matching requirements for their 1862
The Scholarships for Students at 1890 Institutions
provision of the 2018 farm bil (§7117; 7 U.S.C. §3222a)
Institutions. In contrast, in FY2020, 12 of the 19 1890
provides support—through competitive grants to 1890
Institutions received a full nonfederal match.
Institutions—for students intending to pursue careers in
Although waivers for matching funds allow for federal
agriculture and food sciences. The 2018 farm bil
funding of 1890 Institutions without complete state funding
authorizes $10 mil ion in annual appropriations from
support, they open funding disparities between 1890 and
FY2020 to FY2023 (FY2021 appropriations: $10 mil ion),
1862 Institutions. Section 7116 of the 2018 farm bill (7
along with $40 mil ion in mandatory funding available
U.S.C. §3221(a)) addresses this issue through a
through FY2023.
transparency requirement: USDA must report annually on
federal capacity funding allocations and nonfederal
https://crsreports.congress.gov
1890 Land-Grant Universities: Background and Selected Issues
IF11847
Genevieve K. Croft, Analyst in Agricultural Policy
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https://crsreports.congress.gov | IF11847 · VERSION 1 · NEW