Farm Bill Primer: Agricultural Research and Extension

Farm Bill Primer: Agricultural Research and Extension

Updated May 3, 2022
Farm Bill Primer: Agricultural Research and Extension
Since 1977, enacted farm bill legislation has included a title
type may focus on agricultural research, extension,
focused on agricultural research, extension, and education
education or some combination of the three.
(the research title). This title contains reauthorizations,
amendments, and new programs administered by the U.S.
LGUs: Capacity and Competitive Grants
Department of Agriculture (USDA). The research title
The farm bill addresses capacity funding of LGUs (e.g.,
addresses research, extension, and education at land-grant
Hatch Act, Evans-Allen Act, Tribal College Endowment
universities (LGUs) and other nonfederal institutions, as
Fund programs). Capacity grant programs require annual
well as departmental policies, programs, and research
appropriations and do not require reauthorization. The 2018
within USDA. This In Focus provides background
farm bill addressed capacity grant issues including
information and discusses selected 2018 farm bill
reporting and administrative requirements, nonfederal
provisions and issues for the next farm bill related to
matching funds, and capacity program eligibility.
agricultural research, extension, and education.
Certain competitive grants are available only to LGUs. The
Background
2018 farm bill established new competitive grant programs
The research title addresses extramural and intramural
for LGUs, including Scholarships for Students at 1890
research, extension, and education activities. In extramural
Institutions (§7117), New Beginning for Tribal Students
activities, federal capacity (formula) and competitive grants
(§7120), and Centers of Excellence at 1890 Institutions
fund the work of nonfederal researchers and educators at
(§7213). It also amended existing competitive grant
LGUs and other nonfederal entities. In intramural
programs for LGUs (e.g., the Federally Recognized Tribes
activities, agency appropriations fund the work of federal
Extension Program). Competitive programs generally
scientists at federal facilities. Agricultural extension
require annual discretionary appropriations and
provides nonformal education to the nonuniversity public.
reauthorization with each farm bill.
Four agencies carry out USDA’s research, extension, and
Competitive Grants Not Specific to LGUs
education activities. The National Institute of Food and
NIFA administers a variety of competitive grant programs
Agriculture (NIFA) administers extramural programs; the
that are open to applicants from an array of institutions. The
Agricultural Research Service (ARS) conducts intramural
Agriculture and Food Research Initiative (AFRI, 7 U.S.C.
scientific research; the Economic Research Service (ERS)
§3157) is NIFA’s flagship competitive grants program;
conducts economic and social science research; and the
eligible applicants include colleges and universities, private
National Agricultural Statistics Service (NASS) conducts
foundations, and other entities. Congress established AFRI
the Census of Agriculture and provides official statistics on
in the 2008 farm bill (P.L. 110-246) and authorized annual
agricultural production and other farm sector indicators.
appropriations of $700 million. The 2018 farm bill
reauthorized these appropriations through FY2023. Other
Most research title programs require annual discretionary
competitive grant programs address a variety of agricultural
appropriations; a few programs receive mandatory
research, extension, and education needs and require
spending. Upon enactment of the Agriculture Improvement
reauthorization to operate beyond FY2023.
Act of 2018 (2018 farm bill; P.L. 115-334), projected
mandatory outlays for the research title totaled $694 million
The farm bill provides mandatory funds for certain
(FY2019-FY2023), accounting for less than 0.2% of total
competitive grant programs, including the Specialty Crop
projected farm bill mandatory spending. In contrast, NIFA
Research Initiative (SCRI, 7 U.S.C. §7632), Organic
received over $1.6 billion in annual discretionary
Agriculture Research and Extension Initiative (OREI, 7
appropriations for FY2022 alone.
U.S.C. 5925b), and Farming Opportunities Training and
Outreach (FOTO, 7 US.C. §2279). Additional discretionary
Extramural Research, Extension, and
funding for these programs is authorized through FY2023.
Education
NIFA administers federal funds through two primary grant
Other Extramural Research
types. NIFA distributes capacity grants (formula funds)
The Foundation for Food and Agriculture Research (FFAR,
among eligible institutions based on formulas in statute.
7 U.S.C. §5939) is a nonprofit research corporation
Recipient institutions develop work plans and decide which
designed to leverage private funding with federal dollars to
of their own projects to support. NIFA awards competitive
support public agricultural research. Congress established
grants directly to individual projects, which eligible
FFAR in the 2014 farm bill (P.L. 113-79) and provided a
applicants propose, and USDA selects through a peer-
total of $200 million in mandatory funding. The 2018 farm
review process. Most capacity grants, and some competitive
bill provided an additional $185 million in mandatory
grants, require nonfederal matching funds. Grants of either
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Farm Bill Primer: Agricultural Research and Extension
funding and required FFAR to submit to Congress a
In another example, some stakeholders have argued that
strategic plan describing a path to self-sustainability.
federal support for 1994 (Tribal) Institutions is inequitable
and should be increased. In contrast to 1862 and 1890
USDA Departmental Policies, Programs, Institutions, Congress has not established capacity grant
and Intramural Research
programs specific to agricultural research and extension for
Other research title provisions address USDA policies,
1994 Institutions. Capacity grants for 1994 Institutions
programs, and intramural research. For example, the 2018
consist of interest distributions from a general-purpose
farm bill amended the purposes of federally funded
endowment fund and provide fewer funds on a per
agricultural research, extension, and education (7 U.S.C.
institution basis. Competitive grants available to 1994
§3101) to add international scientific collaboration;
Institutions provide less financial predictability than
reauthorized and amended the National Agricultural
capacity grants. Congress may choose to consider the
Research, Extension, Education, and Economics Advisory
amount and type of funding it provides to 1994 Institutions.
Board (7 U.S.C. §3121 et seq.); and directed ERS to update
a report on U.S. dairy farms (P.L. 115-334, §7607).
Agricultural Research Infrastructure
Some stakeholders have raised concerns about aging
The 2018 farm bill also established a new pilot program
agricultural research infrastructure. Many grants
within USDA’s Office of the Chief Scientist—the
administered by NIFA prohibit spending funds on research
Agriculture Advanced Research and Development
facilities. The Build Back Better Act (H.R. 5376) would
Authority (AGARDA, 7 U.S.C. §3319k)—to carry out
provide $1 billion for the construction or improvement of
innovative research and to develop and deploy advanced
agricultural research facilities at 1890 and 1994 Institutions
solutions to agricultural threats. Congress authorized $50
and certain other minority-serving institutions. Congress
million per year (FY2019-FY2023) for AGARDA. As of
may consider the role of federal funding, if any, in
this writing, Congress has not provided appropriations for
improving aging agricultural research infrastructure.
and USDA has not established AGARDA.
Research Innovation
Considerations for Congress
The 2018 farm bill authorized the establishment of
AGARDA to support innovative, high-risk, high-reward
Capacity vs. Competitive Funding
research that USDA or FFAR would not otherwise fund. As
In recent years, approximately 45% of funds appropriated
of this writing, Congress has not appropriated funds for
for USDA research agencies was provided to NIFA and
AGARDA; its authorization expires in 2023. Congress may
about 47% to ARS. Many believe that ARS research fills an
consider the need for federal funding of innovative research
important niche that industry and other institutions do not
and for the flexible hiring and funding authorities granted to
meet: addressing problems of national and long-term
AGARDA.
priority. On the other hand, some believe that ARS
scientists have an unfair advantage over other scientists
Climate Change Research and Extension
who do not have the consistent funding that ARS
Unpredictable weather conditions and climate change have
appropriations provide. Congress may consider the
emerged as concerns for farmers and ranchers. USDA has
appropriate balance of intramural and extramural research
broad authorities to conduct agricultural research and
funding, which could involve a review of existing programs
extension, and it has funded climate change projects via
and authorized funding amounts.
departmental initiatives and certain existing programs.
Stakeholders including the Food and Agriculture Climate
LGU Funding Equity
Alliance—a diverse coalition of producers, agribusinesses,
The 2018 farm bill addressed certain aspects of funding
state governments, and others—have advocated for an
equity among LGU types. For example, it addressed a
increased focus on this topic. Congress may consider
difference in nonfederal matching funds requirements for
whether existing authorities, programs, and funding levels
1890 (historically Black) and 1862 (original) LGUs.
for climate change research and extension adequately
Research and extension capacity programs require 1:1
address the needs of agricultural producers.
nonfederal matching funds. However, for the 1890
programs—and not for the 1862 programs—states may
Selected CRS Reports
request and receive a waiver for up to 50% of the required

CRS Report R40819, Agricultural Research: Background and
match. As such, some 1890 Institutions receive less than a
Issues
100% nonfederal match, and all 1862 Institutions receive a
full match. The 2018 farm bill (§7116) addressed this by

CRS In Focus IF11319, 2018 Farm Bill Primer: Agricultural
requiring USDA to report annually on federal capacity
Research and Extension
awards, including data showing which 1890 Institutions did

CRS Report R45897, The U.S. Land-Grant University
not receive a full nonfederal match. This provision has had
System: An Overview
little effect on the provision of state matching funds to 1890

CRS In Focus IF11847, 1890 Land-Grant Universities:
Institutions for research and extension capacity grants—
Background and Selected Issues
total waivers granted before and after implementation were

CRS In Focus IF12009, 1994 Land-Grant Universities:
about the same, $15.3 million (FY2018) and $15.5 million
Background and Selected Issues
(FY2019). Congress may consider whether—and if so,
how—to address stakeholder concerns about incomplete

matching funds for 1890 Institution capacity grants.
Genevieve K. Croft, Specialist in Agricultural Policy
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Farm Bill Primer: Agricultural Research and Extension

IF12023

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