2018 Farm Bill Primer: SNAP and Nutrition Title Programs

2018 Farm Bill Primer: SNAP and Nutrition Title Programs

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January 30, 2019
2018 Farm Bill Primer: SNAP and Nutrition Title Programs
The Nutrition title of the farm bill typically reauthorizes a
SNAP Funding
number of nutrition or domestic food assistance programs.
These include the Supplemental Nutrition Assistance
SNAP is authorized as open-ended mandatory spending and
Program (SNAP, formerly the Food Stamp Program) and
is funded through appropriations laws. As such, amending
certain other programs administered by the U.S.
SNAP eligibility, benefits, or other program rules can have
Department of Agriculture’s (USDA’s) Food and Nutrition
a budgetary impact. At the same time, the availability of
Service (FNS). These programs (listed below, with
appropriated funding also affects SNAP’s operation.
additional detail in Table 1) were last reauthorized by the
SNAP’s spending is largely driven by program
Agriculture Improvement Act of 2018 (2018 farm bill; P.L.
participation, which can fluctuate due to economic
115-334). They are authorized through September 30, 2023.
conditions and program rules (see Figure 1).
Farm bills since 1973 have included reauthorization of the
Approximately 95% of SNAP spending is for the benefits
Food Stamp Program (renamed SNAP in 2008).
themselves, which are 100% federally funded.
Nutrition Programs Reauthorized in a
Administrative costs of eligibility determination are shared
Farm Bill
between the states and the federal government. Other SNAP
spending includes funds for nutrition education and
The major programs reauthorized in the 2018 farm bill were
Employment and Training (E&T).
the following:

Figure 1. SNAP Participation and Federal Spending
SNAP and related grant programs (e.g., SNAP
(FY1993-FY2018)
Employment & Training);
 Programs in lieu of SNAP: Food Distribution Program
on Indian Reservations (FDPIR), grants for certain
territories;
 The Emergency Food Assistance Program (TEFAP);
 Commodity Supplemental Food Program (CSFP);
 Community Food Projects;
 Senior Farmers’ Market Nutrition Program
(SFMNP); and
 Food Insecurity Nutrition Incentive (FINI) grants.
SNAP is the largest of USDA’s domestic food assistance
programs, in both participation and spending (see Table 1).
Relationship with Child Nutrition Reauthorization
The authorizing statutes for the child nutrition programs
(the National School Lunch Program and other institutional

food service programs) and the Special Supplemental
Source: CRS, using USDA-FNS administrative data.
Nutrition Program for Women, Infants, and Children (WIC)
Note: Data underlying this chart are available in CRS Report
are typically reauthorized in a “child nutrition
R42505, Supplemental Nutrition Assistance Program (SNAP): A Primer on
reauthorization”—not a farm bill. These programs were last
Eligibility and Benefits.
reauthorized by the Healthy, Hunger-Free Kids Act of 2010
(P.L. 111-96). However, recent farm bills have included
Other Funding
some provisions related to food purchasing and distribution
for schools. The 2018 farm bill extends funding for federal
The programs in lieu of SNAP (except for a small amount
purchases of fresh fruits and vegetables for schools and
of FDPIR) are also mandatory spending. TEFAP’s
service institutions and requires USDA to enforce “Buy
“entitlement commodity” funds for food are mandatory
American” requirements for school food purchases.
spending, while the program’s administrative costs are
Funding
discretionary. CSFP is discretionary spending. SFMNP
receives mandatory funding from sources outside of annual
According to the Congressional Budget Office’s (CBO’s)
appropriations bills.
projected costs at the time of the 2018 law’s enactment, the
SNAP in the 2018 Farm Bill
Nutrition title makes up approximately 76% of farm bill
spending. SNAP is the vast majority of the title’s spending.
The 2018 farm bill was formulated and enacted amid
contentious debate that centered on SNAP’s work
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requirements and other eligibility rules. The enacted 2018
Related CRS Reports
farm bill had to reconcile significant differences between
CRS Report R42353, Domestic Food Assistance: Summary of
the House- and Senate-passed SNAP provisions, ultimately
Programs, by Randy Alison Aussenberg and Kirsten J. Colello
making few eligibility changes. On work-related rules, the
CRS Report R42505, Supplemental Nutrition Assistance Program
enacted bill increases funding for and services provided in
(SNAP): A Primer on Eligibility and Benefits, by Randy Alison
the SNAP Employment and Training (E&T) program and
Aussenberg
reduces available caseload exemptions from the time limit
CRS Report R45408, The Emergency Food Assistance Program
for “able-bodied adults without dependents.” Among other
(TEFAP): Background and Funding, by Kara Clifford Bil ings
changes, the law included changes to SNAP’s Electronic
CRS Report R42054, The Supplemental Nutrition Assistance Program
Benefit Transfer (EBT) and error detection systems and
(SNAP): Categorical Eligibility, by Randy Alison Aussenberg and
increases in funding for TEFAP and FINI. The 116th
Gene Falk
Congress may play an oversight role as the Administration
implements the 2018 Nutrition title’s changes to the law.

Table 1. Major Nutrition Programs in the 2018 Farm Bill

FY2018
Expenditures
(in millions)
(exceptions
Program
Authorizing Statute
Program Summary
noted)
Participation
Supplemental
Food and Nutrition Act of
Provides to low-income households electronic
$64,989
40.3 million
Nutrition
2008 (§1 et seq.)
benefits redeemable for SNAP-eligible foods at
Assistance Program
SNAP-eligible retailers. Benefit amounts vary by
(SNAP) (formerly,
household size and benefit calculation rules. Non-
Food Stamp
benefit SNAP funding for matching states’
Program)
administrative costs, Employment & Training,
nutrition education, and other SNAP-related costs.
Operates in 50 states, the District of Columbia,
Guam, Virgin Islands; other territories receive
nutrition block grants in lieu of SNAP.
The Emergency
Food and Nutrition Act of
Provides food commodities (and cash support for
$623a
Not available
Food Assistance
2008 (§27); Emergency Food storage and distribution costs) through states to local
Program (TEFAP) Assistance Act (§204(a))
emergency feeding organizations (e.g., food banks).
Commodity
Agriculture and Consumer
Provides supplemental monthly food packages to low-
$228
676,000
Supplemental Food Protection Act of 1973
income elderly persons (primarily).
Program (CSFP)
(§4(a))
Food Distribution Food and Nutrition Act of
Provides, in lieu of SNAP benefits, food commodities
$125
87,000
Program on Indian 2008 (§4(b)); Agriculture and to low-income households on Indian reservations and
Reservations
Consumer Protection Act of to Native American families residing in Oklahoma or
(FDPIR)
1973 (§4(a))
in designated areas near Oklahoma.
Senior Farmers’
Farm Security and Rural
Provides vouchers/coupons to low-income seniors to
$20.4
812,000
Market Nutrition
Investment Act of 2002
purchase fresh produce at farmers’ markets and
Program (SFMNP) (§4002)
other direct-to-consumer venues.
Community Food Food and Nutrition Act of
Competitive grants to nonprofit organizations for
$9
Not available
Projects
2008 (§25)
programs that improve access to locally produced
food for low-income households.
Gus Schumacher
Food Conservation and
Competitive grants for projects that increase low-
$23
Not available
Food Insecurity
Energy Act of 2008 (§4405) income consumers’ purchase of fruits and vegetables
Nutrition Incentive
by providing incentives at SNAP points of purchase or
(FINI) program
(added by 2018 farm bil ) providing produce
prescriptions to SNAP/Medicaid participants.
Source: Except as noted, participation and funding data from USDA-FNS Key Data Report, dated November 2018, based on data through
September 2018. SFMNP funding and data displayed for FY2017 from USDA-FNS program website.
a. Includes bonus and entitlement purchases and spending on administrative costs.

Randy Alison Aussenberg,
Kara Clifford Billings, Analyst in Social Policy

IF11087

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2018 Farm Bill Primer: SNAP and Nutrition Title Programs

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