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Updated May 3, 2024
Farm Bill Primer: Conservation Title
The conservation title of a farm bill generally contains
one-year extension for FY2024 and crop year 2024 (P.L.
reauthorizations, amendments, and new programs that
118-22, Division B, §102). For additional information, see
encourage farmers and ranchers to voluntarily implement
CRS Report R47659, Expiration of the 2018 Farm Bill and
resource-conserving practices on private land. Starting in
Extension in 2024.
1985, farm bills broadened the conservation agenda to
include addressing multiple natural resource concerns.
Funding for Conservation
Although the number of conservation programs has
The conservation title is one of the larger non-nutrition
increased and techniques to address resource problems
titles of the farm bill, accounting for $58 billion in
continue to emerge, the basic approach has remained
projected 10-year mandatory funding (FY2025-FY2034).
unchanged: provide financial and technical assistance to
Spending for agricultural conservation programs generally
implement conservation systems supported by education
has increased from $2.3 billion in FY2002 ($3.7 billion
and research programs.
when adjusted for inflation) to an estimated $5 billion in
total outlays in FY2024. Annual outlays beyond the 2018
As Congress considers authorizing the next farm bill, areas
farm bill’s extended expiration (FY2024) are projected to
of possible interest in the conservation title may include
rise to above $6 billion (Figure 1), assuming programs are
funding for programs, climate strategies for the agricultural
reauthorized with no changes.
sector, and compliance provisions.
Conservation Program Portfolio
Selected Farm Bill Conservation Programs
Conservation programs are administered by the U.S.
Working lands programs allow private land to remain in
Department of Agriculture (USDA) and can be grouped
production while agriculture producers implement various
into the following categories: working lands programs, land
conservation practices to address natural resource concerns
retirement programs, easement programs, partnership and
specific to the area.
grant programs, and conservation compliance (see text box;
•
Environmental Quality Incentives Program (EQIP),
and CRS Report R40763, Agricultural Conservation: A
Conservation Stewardship Program (CSP), and Agricultural
Guide to Programs).
Management Assistance (AMA)
Land retirement programs provide payments to private
Other types of conservation programs—such as watershed
agricultural landowners for temporary changes in land use and
programs, emergency land rehabilitation programs, and
management to achieve environmental benefits.
technical assistance—have been authorized outside the farm
bill. Most of these programs have permanent authorities and
•
Conservation Reserve Program (CRP)––includes
receive appropriations annually through the discretionary
Conservation Reserve Enhancement Program (CREP),
appropriations process. These programs generally are not
Farmable Wetland Program, Clean Lakes Estuaries and
addressed in farm bill legislation unless amendments to the
Rivers Pilot (CLEAR30), Soil Health and Income Protection
program are proposed.
Program (SHIPP), and Transition Incentives Program (TIP)
Easement programs voluntarily impose a permanent or long-
Title II (Conservation) of the Agricultural Improvement Act
term restriction on land use in exchange for a payment.
of 2018 (2018 farm bill; P.L. 115-334) reauthorized and
•
Agricultural Conservation Easement Program (ACEP) and
amended portions of most conservation programs, although
Healthy Forests Reserve Program (HFRP)
there was focus on the large-cost programs, namely the
Partnership and grant programs use partnership agreements
Conservation Reserve Program (CRP), Environmental
and grants to leverage program funding with nonfederal funding.
Quality Incentives Program (EQIP), and Conservation
Stewardship Program (CSP). Most farm bill conservation
•
Regional Conservation Partnership Program (RCPP),
programs are authorized to receive mandatory funding (i.e.,
Conservation Innovation Grants (CIG), On-Farm
they do not require an annual appropriation).
Conservation Innovation Trials, Feral Swine Eradication and
Control Pilot Program (Feral Swine), Voluntary Public
In 2022, Congress passed the bill commonly referred to as
Access and Habitat Incentive Program (VPAHIP)
the Inflation Reduction Act of 2022 (IRA; P.L. 117-169).
Conservation compliance prohibits or limits a producer from
As part of this bill, Congress provided additional funding to
receiving selected federal farm program benefits (including crop
selected farm bill conservation programs and extended the
insurance premium subsidies) when conservation program
authority for those programs through FY2031.
requirements for highly erodible lands, wetlands, and production
Conservation programs not included in the IRA had
on native sod are not met.
authorities that expired with other farm bill programs at the
•
Highly erodible lands conservation (Sodbuster), wetland
end of FY2023. In November 2023, Congress enacted a
conservation (Swampbuster), and Sodsaver
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Farm Bill Primer: Conservation Title
Figure 1. Farm Bill Conservation Program Actual and
Climate Change
Projected Mandatory Spending, FY2002-FY2034
Current agriculture sector strategies for addressing climate
outlays in bil ions of dol ars (actuals adjusted for inflation)
change, through both adaptation and mitigation, rely on the
delivery of voluntary conservation technical assistance and
financial support programs. Most farm bill conservation
programs are designed to address multiple concerns through
locally adaptable practices. No existing conservation
program is specific to climate change adaptation or
mitigation, but most programs can integrate adaptation to
changes in climate within their current structure.
As part of the next farm bill, Congress may evaluate how
well existing farm bill conservation programs assist
producers in achieving climate change-related goals,
especially in light of the IRA’s additional funding and
requirement for funds to go toward climate change-related
practices. How USDA implements the IRA funds and other
department-wide climate-focused initiatives may influence
the conservation title.
Use of IRA Supplemental Funding
Sources: CRS, using Congressional Budget Office (CBO) baseline
data, FY2003-FY2024; and Office of Management and Budget, Table
Changes to mandatory spending authorized in a farm bill
10.1—Gross Domestic Product [GDP] and Deflators Used in the
are measured against a baseline projection at a particular
Historical Tables: 1940-2029, March 2024.
point in time that assumes current law continues
unchanged. Figure 1 shows the projected baseline for farm
Notes: FY2002-FY2022 are actual spending levels, and FY2023 is an
bill conservation programs over a 10-year period (FY2024-
estimate. FY2002-FY2022 are adjusted for inflation to 2023 dol ars
FY2034). Funding provided through the IRA is
using the GDP price deflator. FY2023-FY2034 are projected spending
supplemental and not considered part of the farm bill
levels in current-year dol ars. Chart does not include sequestration
baseline (see CRS In Focus IF12233, Farm Bill Primer:
or supplemental funding.
Budget Dynamics for additional information on the
baseline). As such, once IRA funding is obligated by
The IRA provided an additional $17 billion for selected
FY2031, only the farm bill baseline funding for
farm bill conservation programs (Figure 2), specifically
conservation will remain (see FY2032 and thereafter in
EQIP, CSP, ACEP, and RCPP. Program funds are directed
Figure 2). Some in Congress have suggested that the farm
to climate change-related conservation practices that
bill should rescind unobligated IRA funding and add it to
improve soil carbon; reduce nitrogen losses; or reduce,
the farm bill baseline. Debate continues on whether this
capture, avoid, or sequester greenhouse gas emissions
should be done to increase funding for conservation
associated with agricultural production. The IRA also
programs and how much should be directed to climate
provided additional funding for conservation programs and
change-related practices, as currently required in the IRA,
activities typically conducted through non-farm bill
or whether the funding should be used to increase other
authorities, such as conservation technical assistance (TA).
titles of the farm bill unrelated to conservation or climate
Figure 2. Conservation Funding: Farm Bill and IRA
change-related activities. Alternatively, without
congressional action, IRA funds would continue to be
projected outlays in bil ions of dol ars
obligated until expended as directed through the
conservation programs identified in the IRA.
Conservation Compliance
The Food Security Act of 1985 (1985 farm bill) created the
highly erodible lands conservation and wetland
conservation compliance programs, which tied various farm
program benefits to conservation standards. This provision
has been amended numerous times to remove applicability
to certain farm program benefits and add others. The 2018
farm bill made relatively few changes to compliance
requirements. Some view these conservation compliance
requirements as burdensome, and they continue to be
unpopular among producer groups. Conservation
compliance has remained a controversial issue since its
introduction in the 1985 farm bill, and ongoing debate on
its existence and effectiveness is likely to continue.
Source: CRS, using CBO, “CBO’s February 2024 Baseline from
Megan Stubbs, Specialist in Agricultural Conservation and
Farm Programs,” February 2024.
Natural Resources Policy
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Farm Bill Primer: Conservation Title
IF12024
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