Updated December 14, 2023
Farm Bill Primer: Horticulture Title and Related Provisions
Beginning in 2008, enacted farm bill legislation has
crops—cover USDA nutrition programs, competitiveness
included a horticulture title covering specialty crops and
and sustainability, trade and foreign competition, research
certified organic products. Over the years, this title has
and innovation, and natural resources and climate. Other
included provisions supporting locally sourced products
industry priorities involving labor availability and H-2A
(not limited to crops) and hemp cultivation. Upon
agricultural guest worker programs or support for U.S.
enactment of the Agriculture Improvement Act of 2018
producer groups that are affected by competition from
(2018 farm bill; P.L. 115-334), projected outlays for the
foreign imports may involve reforms outside of a farm bill.
horticulture title totaled $1.0 billion (FY2019-FY2023),
accounting for less than 0.5% of total projected farm bill
Terms and Definitions
spending. Funding for these sectors is not limited to the
horticulture title but is also contained within other titles,
Specialty crops – “fruits and vegetables, tree nuts, dried fruits,
covering a range of programs administered by the U.S.
and horticulture and nursery crops (including floriculture)” (7
Department of Agriculture (USDA). Congress has extended
U.S.C. §1621 note).
farm bill funding through FY2024 (P.L. 118-22, Division
USDA Organic – agricultural products certified and labeled as
A, §102), extending funding for specialty crops, certified
grown and processed in accordance with USDA regulations (7
organic products, and locally sourced products.
C.F.R. §205) and verified by a USDA-accredited certifying
agent according to USDA’s National Organic Program (NOP).
The following is an overview of selected 2018 farm bill
NOP is a voluntary certification program for producers and
provisions and issues for the next farm bill related to
handlers that use approved methods and standards, covering
specialty crops, USDA-certified organic products, and
organically produced specialty crops, field crops, and animal
locally sourced foods (for descriptions, see text box). This
products (e.g., meat and dairy products), as well as nonfood
excludes a discussion of hemp cultivation, which is
consumer products.
addressed separately in CRS In Focus IF12278, Farm Bill
Locally Sourced Foods – No consensus exists for what
Primer: Selected Hemp Industry Issues.
constitutes locally sourced foods. In most cases, USDA farm
Specialty Crops
programs that support local food systems base program
eligibility on using a statutory definition of locally or regionally
The 2018 farm bill reauthorized and expanded funding for
produced agricultural food products as any food product that is
many of the existing USDA programs supporting fruits,
raised, produced, and distributed in “the locality or region in
vegetables, and other specialty crops. In the horticulture
which the final product is marketed” where “the total distance
title, provisions included Specialty Crop Block Grants to
that the product is transported is less than 400 miles from the
states, Specialty Crop Market News data collection, food
origin of the product; or … the State” where produced (7
safety education initiatives, and chemical regulation and
U.S.C. §1932).
information collection. Provisions in other 2018 farm bill
titles included the Specialty Crop Research Initiative
Legislation introduced in the 118th Congress would address
(research title); USDA purchases of fruits and vegetables
various industry priorities. These include bills that would
for use in domestic assistance programs (nutrition title); and
expand domestic market development (e.g., H.R. 5061),
pest and disease research, emergency funding for citrus
competitiveness (e.g., H.R. 4838), and support for domestic
disease research, federal crop insurance, supplemental
producers (e.g., H.R. 5062, H.R. 679). Other bills would
disaster assistance, trade promotion, and other marketing
require reporting on the competitiveness of U.S. specialty
programs (various titles).
crop exports (e.g., H.R. 6399/S. 3300) and address import
competition (e.g., H.R. 545/S. 104, H.R. 2536). Other
Selected Issues and Options
legislation would increase USDA purchases of fruits and
Produce industry groups represent a range of crops and
vegetables (e.g., H.R. 5589/S. 2874, S. 1639) and funding
regional interests. In previous farm bills, these groups
for fruits and vegetables in various USDA domestic
tended to support reauthorization and expansion of existing
programs (e.g., H.R. 4149/S. 2015, H.R. 3127/S. 2223,
USDA programs. The next farm bill also could focus on
H.R. 4185). Other bills would address a specialty crop
other legislative priorities within the industry, such as
mechanization and automation initiative (e.g., H.R. 4173)
market development and competitiveness, supply-chain
and pest and disease research (e.g., H.R. 3856, S. 322),
disruptions and distribution challenges, export promotion,
among other research (e.g., H.R. 4359/S. 2135, S. 2192).
research and innovation, and expansion of USDA
Other proposals would modify adjusted gross income (AGI)
procurement and access to domestic nutrition programs and
payment limits that SCFBA claim disproportionately
other USDA programs. Priorities of the Specialty Crop
prohibit specialty crop producers from participating in
Farm Bill Alliance (SCFBA)—representing producer
USDA conservation and disaster programs (e.g., H.R.
organizations of fruits, vegetables, tree nuts, and nursery
2942/S. 1365), and other proposals would expand federal
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Farm Bill Primer: Horticulture Title and Related Provisions
crop insurance for certain damages (e.g., H.R. 4308/S.
which combined and expanded existing USDA farmers’
2134).
market, local food marketing, and value-added processing
grant programs. Provisions in other farm bill titles enhanced
USDA-Certified Organic Agriculture
crop insurance and disaster assistance for urban and small-
The 2018 farm bill reauthorized and expanded support for
scale production and changed food programs and grants.
agricultural products certified and labeled as USDA
Organic. (For background, see CRS In Focus IF10278, U.S.
The 2018 farm bill created new support for urban food
Farm Policy: USDA-Certified Organic Production.) The
systems in the research and other titles, establishing an
horticulture title of the 2018 farm bill primarily focused on
Office of Urban Agriculture and Innovative Production
addressing perceived shortcomings in USDA’s organic
(OUAIP) at USDA and providing new grant authority to
certification by making changes intended to enhance
facilitate urban production, harvesting, transportation, and
enforcement, limit program fraud, and fund technology
marketing. The 2018 farm bill also included provisions
upgrades. Other provisions changed the eligibility and
supporting historically underserved producers (Title XII,
consultation requirements of the National Organic
Subtitle C). These provisions expanded USDA support for
Standards Board (NOSB) and reauthorized the National
beginning, socially disadvantaged, and veteran farmers and
Organic Certification Cost-Share Program and the Organic
ranchers, which often also support farming operations
Production and Market Data collection. Provisions in other
within USDA programs benefitting local and urban farmers.
2018 farm bill titles included the Organic Agriculture
Research and Extension Initiative (research title); transition
Selected Issues and Options
assistance and incentives for organic production
Legislative priorities among groups representing generally
(conservation title); and federal crop insurance and other
small-sized local and urban producers—and beginning,
marketing and promotion support in other titles.
socially disadvantaged, and veteran farmers and ranchers—
span diverse food systems and community needs. Shared
Selected Issues and Options
priorities include increased access to USDA programs and
The organic industry represents highly diverse interests
the need to address equity and competition—often related
with often diverging priorities. Some shared priorities have
to small-sized and limited resource producers. (For
focused on USDA not finalizing regulations addressing
background, see CRS In Focus IF12096, Farm Bill Primer:
transitioning dairy cows, livestock handling and poultry
Beginning and Underserved Producers.) Priorities also
living conditions, and oversight and enforcement of NOP-
often focus on agricultural sustainability and access to
certified products. Farm bill priorities have been put
USDA conservation funding, as well as support for USDA
forward by the Organic Trade Association, the National
certified organic and specialty crop production systems.
Organic Coalition, and the Organic Farmers Association,
among other groups that support organic produce and other
Legislation introduced in the 118th Congress includes bills
specialty crops. Other producer groups are actively
that would increase funding for LAMP and local and
pursuing an alternative certification regime under a
regional food system infrastructure and would make locally
Regenerative Organic label, in part to address certain
grown produce more available to certain USDA programs
perceived NOP shortcomings and in part related to soilless
(e.g., H.R. 2723/S. 1205, H.R. 4149/S. 2015); provide
hydroponic growing systems that qualify as USDA Organic.
mandatory funding and make program changes to OUAIP
(S. 2591); and expand support and training for local, small
Legislation introduced in the 118th Congress would address
meat and poultry processing plants (S. 354/H.R. 945). Other
various industry priorities. Some shared priorities among
proposals would address industry consolidation and anti-
some groups include bills that would expand organic
trust concerns (H.R. 4979/S. 2670). Other bills would
market development, particularly for smaller scale and
expand program support, training, and opportunities for
socially disadvantaged producers and underserved regions
small, local, and underserved producer groups (e.g., H.R.
(e.g., H.R. 3650/S. 1582, H.R. 1167/S. 96); create
3955/S. 2340, S. 2380, S. 2023); support agricultural
competitive grants to support organic transition (H.R.
conservation and research into climate-related practices
2720); require improved coordination between USDA
(e.g., H.R. 5354/S. 2180, H.R. 1840/S. 1016, S. 2614); and
research agencies and organic research and extension (S.
support creation of a more resilient and diverse food supply
2317); and amend USDA’s NOP to establish a regulatory
chain (H.R. 4873, H.R. 3814). Various other industry
framework to develop organic standards and address any
priorities have been proposed by the National Sustainable
backlog in developing such standards (H.R. 5973). Other
Agriculture Coalition, which represents organizations
proposals would expand support for regionally adapted seed
advocating for the sustainability of agriculture, food
varieties and animal breeds (S. 2023), support agricultural
systems, natural resources, and rural communities.
conservation and research into climate-related practices
(H.R. 1840/S. 1016), and provide certain types of support
Selected CRS Resources
for USDA-certified organic milk and dairy production (S.
3097).
CRS In Focus IF11317, 2018 Farm Bill Primer: Specialty Crops and
Organic Agriculture
Locally Sourced Foods
CRS In Focus IF11252, 2018 Farm Bill Primer: Support for Local
The 2018 farm bill reauthorized and expanded funding for
Food Systems
many existing provisions supporting locally sourced foods
CRS In Focus IF11227, 2018 Farm Bill Primer: Beginning Farmers
(both crops and animal products). The horticulture title
and Ranchers
created the Local Agriculture Market Program (LAMP),
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Farm Bill Primer: Horticulture Title and Related Provisions

IF12017
Renée Johnson, Specialist in Agricultural Policy


Disclaimer
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https://crsreports.congress.gov | IF12017 · VERSION 3 · UPDATED

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