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January 4, 2022
1994 Land-Grant Universities: Background and Selected Issues
The 1994 Institutions are the Tribal Colleges and
Universities (TCUs) that belong to the U.S. land-grant
Grant Programs
university (LGU) system. As such, they receive federal
NIFA administers federal funds for LGUs through two
funds for agricultural research, education, and extension
primary grant types. NIFA distributes capacity grants, also
through programs administered by the U.S. Department of
known as formula funds, among eligible institutions based
Agriculture’s (USDA’s) National Institute of Food and
on statutory formulas. Recipient institutions decide which
Agriculture (NIFA). Congress supports the 1994
of their own projects to support. NIFA awards competitive
Institutions and other LGUs though appropriations,
grants directly to specific projects proposed by eligible
legislation, and oversight.
applicants and selected through a USDA peer-review
process. Grants of either type may focus on agricultural
Background
research, education, extension, or some combination of the
The LGU system—comprising the 1862 Institutions (57
three (integrated activities). Certain grant programs are
original LGUs), 1890 Institutions (19 historically Black
specific to particular LGU types, and others are open to a
LGUs), and 1994 Institutions (35 Tribal LGUs)—is a
variety of applicants. The text box on the next page
partnership between the federal government and the states,
provides more information on USDA Tribal programs for
with a threefold mission of teaching, research, and
LGUs, which include capacity and competitive grants.
extension. LGUs are present in all 50 states, the District of
Columbia, and six U.S. territories. They originally focused
USDA Initiative
on agriculture and the mechanical arts and now engage in a
In addition to grant programs created through legislation,
variety of academic disciplines.
USDA has managed the USDA/1994 Tribal Scholars
Program as a departmental initiative since 2008. USDA
The Equity in Educational Land-Grant Status Act of 1994
partners with the 1994 Institutions to provide selected
(P.L. 103-382, Title V, Part C; 7 U.S.C. §301 note) added
students of food, agriculture, and related disciplines with
TCUs to the LGU system. This legislation and subsequent
scholarships and temporary USDA employment, which
amendments name 36 1994 Institutions (Figure 1), of
may later convert to permanent employment. USDA
which 35 are currently accredited, to be considered LGUs
agencies pay these students’ tuition and fees.
established in accordance with the Morrill Act of 1862 (7
U.S.C. §301 et seq.) except for how they are funded. In lieu
Considerations for Congress
of grants of land or land scrip that the 1862 Institutions
Federal support of the colleges and universities that
received, annual appropriations endow and maintain the
comprise the LGU system has strengthened agricultural
1994 Institutions. The 1994 Institutions Endowment Fund
research, education, and extension. Some argue that
was created in the U.S. Treasury, and interest payments are
differences in federal support for the 1862, 1890, and 1994
distributed annually on a formula basis. The 1994
Institutions constitute inequities that Congress may consider
Institutions are founded and chartered by American Indian
addressing. It also could be argued that institutional
tribes and predominantly enroll Native students. All 1994
Institutions offer associate’s degrees, 14 offer bachelor’s
differences—including numbers of students served, types of
degrees, and 5 offer master’s degrees.
degrees awarded, and their missions—should factor into
federal funding allocations and programmatic decisions
Figure 1. Map of 1994 Institutions
affecting the LGU system. NIFA programs primarily
support agriculture-related activities. LGUs derive
additional financial support from other sources (e.g., other
federal programs, endowments, student tuition).
Federal Appropriations
1994 Institutions receive fewer federal funds administered
by NIFA—in total—than 1862 and 1890 Institutions, and
they are ineligible for certain grant types available to 1862
and 1890 Institutions. Whereas the 1862 and 1890
Institutions receive federal capacity funds specific to
agricultural research and extension (which brings research
to the public through nonformal education activities), 1994
Institutions do not. Although 1994 Institutions have more
limited enrollment and offer fewer postsecondary degrees
than 1862 and 1890 Institutions (Table 1), some argue that
Source: Map created by CRS.
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1994 Land-Grant Universities: Background and Selected Issues
funding for agricultural research and extension at the 1994
and 1994 Institutions in providing agricultural extension
Institutions is insufficient and should be increased.
and postsecondary education services to Native Americans.
Table 1. Selected Aggregate Metrics by LGU Type
USDA Tribal Programs for LGUs
Metric
1862
1890
1994
The Educational Equity in Land-Grant Status Act of 1994 (P.L.
Number of Institutions
57
19
35
103-382, Title V, Part C; 7 U.S.C. §301 note) and additional
legislation authorize USDA grant programs for 1994 and
Total Undergraduate Students 1,534,525
89,544
23,481
other LGUs. Program descriptions, authorizations, and
Total Graduate Students
446,014
14,734
273
FY2021 appropriations (P.L. 116-260) are identified below.
Total Fed. Capacity Funding:
$574M
$124M
—
Capacity Grants for 1994 Institutions
Research, Extension Programs
The Tribal Col ege Endowment Program provides 1994
Sources: 12-month (2019-2020) enrol ment data from National
LGUs with discretionary funds to support agriculture and
Center for Education Statistics, Integrated Postsecondary Education
the mechanical arts. This provision (P.L. 103-382, §533,
Data System. Funding totals from FY2020 appropriations (P.L. 116-94)
as amended) authorizes “such sums as are necessary”
include research and extension capacity programs (1862 Institutions:
from FY1996 to FY2023. Appropriations fund the 1994
Hatch, Smith-Lever 3(b) and 3(c); 1890 Institutions: Evans-Al en,
Institutions Endowment Fund, and interest is distributed
NARETPA Section 1444; 1994 Institutions: no comparable programs).
annually according to a formula. Funds do not expire or
require nonfederal matching. FY2021 appropriations:
Notes: Student totals do not indicate the subset of students who are
$11.9 mil ion; FY2020 interest distribution: $5.0 mil ion.
engaged in agricultural disciplines, making it difficult to compare
Tribal Col eges Educational Equity grants support
overal support levels for these students. Access to funding sources
education at 1994 Institutions. This provision (P.L. 103-
other than NIFA capacity grants may vary by institution type.
382, §534(a), as amended) authorizes appropriations of
$100,000 per 1994 Institution and does not require
1994 Institution Capacity and Competitive Funding
reauthorization. FY2021 appropriations: $4.5 mil ion.
In contrast to the 1862 and 1890 Institutions, Congress has
Competitive Grants for 1994 Institutions
not established capacity grant programs specific to
agricultural research and extension for 1994 Institutions.
The Tribal Col ege Research Grant Program (7 U.S.C.
Capacity grants for 1994 Institutions consist of interest
§301 note) provides grants to 1994 Institutions for
distributions from a general-purpose endowment fund that
research in cooperation with specified types of
total about $5.0 million annually for the 35 institutions and
institutions (including 1862 and 1890 LGUs). This
an education capacity grant program that received $4.5
provision (P.L. 103-382, §536, as amended) authorizes
million in FY2021 appropriations.
“such sums as are necessary” from FY1999 to FY2023.
FY2021 appropriations: $4.0 mil ion.
Congress has authorized competitive grants for research,
The Tribal Col ege Extension Grants Program (7 U.S.C.
extension, and institutional capacity building at 1994
§343(b)(3)) supports 1994 Institution extension activities.
Institutions. Unlike many grant programs managed by
This provision (P.L. 103-382, §534(b)(1), as amended)
NIFA, the Tribal College Research Grant Program requires
authorizes “such sums as are necessary” and does not
1994 Institutions to partner with other institution types
require reauthorization. Funds do not expire. FY2021
(e.g., 1862 Institutions, 1890 Institutions, the USDA
appropriations: $8.5 mil ion.
Agricultural Research Service) in order to be eligible for
1994 Institutional Capacity Building Grants (7 U.S.C. §301
funding. The competitively awarded Tribal College
note) support constructing, remodeling, and acquiring
Extension Grants Program provides funds for Tribal
facilities for agriculture and science instruction. These
extension programs. The 1994 Institutional Capacity
grants require nonfederal matching in amounts to be
Building Grants program has not received appropriations.
specified by USDA. This provision (P.L. 103-382, §535, as
amended) authorizes “such sums as are necessary” from
Congress may choose to consider the amount and type of
FY2002 to FY2018. FY2021 appropriation: $0.
funding it provides to 1994 Institutions. Certain competitive
Competitive Grants Available to All LGUs
grants are available only to applicants from 1994
Institutions, providing them with opportunities to fund
The Federally Recognized Tribes Extension Program
research and extension projects. However, competitive
(authorized under the more general 7 U.S.C. 343(d))
grants do not provide the same financial predictability as
provides grants for extension programs on Indian
capacity grants. This may inhibit the initiation or
reservations and Tribal jurisdictions. Requires 100%
continuation of long-term research and extension projects
matching funds. FY2021 appropriations: $89.9 mil ion.
relevant to 1994 Institutions and the populations they serve.
New Beginning for Tribal Students (7 U.S.C. §3222e)
provides grants to support Tribal students through
Institutional Eligibility for Tribal Grants Programs
recruiting, tuition, experiential learning, and student
Congress provides competitive grants available to all LGU
services. The 2018 farm bil (P.L. 115-334, §7120)
types for extension and scholarship programs benefiting
established the program, authorizes $5.0 mil ion annually
Native Americans through the Federally Recognized Tribes
from FY2019 to FY2023, and requires 100% matching
Extension Program and New Beginning for Tribal Students.
funds. FY2021 appropriations: $5.0 mil ion.
Congress may choose to consider the roles of 1862, 1890,
https://crsreports.congress.gov
1994 Land-Grant Universities: Background and Selected Issues
IF12009
Genevieve K. Croft, Specialist in Agricultural Policy
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https://crsreports.congress.gov | IF12009 · VERSION 1 · NEW