Next Farm Bill Primer Series

November 18, 2022 – January 25, 2024 R47313

Next Farm Bill Primer Series
Updated January 25, 2024
Congressional Research Service
https://crsreports.congress.gov
R47313

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Next Farm Bill Primer Series

Introduction
This report constitutes a guide to a series of two-page “primers” examining the various programs
and policies that comprise periodic omnibus legislation on farm and food policy, commonly
known as “the farm bill.” The President signed the 2018 farm bill, the Agriculture Improvement
Act of 2018 (P.L. 115-334), into law on December 20, 2018. The 2018 farm bill generally
authorizes programs for five years. In November 2023, Congress enacted a one-year extension to
cover FY2024 and crop year 2024 (P.L. 118-22, Division B, §102). As such, many farm bill
programs will expire in 2024 unless Congress acts to extend their authorization or reauthorizes
them as part of a subsequent farm bill.
The 2018 farm bill authorized a broad array of programs and policies across 12 titles that define
much of the federal government’s role in the agricultural sector. It also established the parameters
for key domestic and foreign nutrition assistance programs. The 2018 farm bill authorizes a wide
range of agriculture and food programs and policies that address commodity support;
conservation; trade; foreign and domestic nutrition assistance; farm credit and rural development;
research, extension, and education; forestry; energy; horticulture; crop insurance; and livestock-
related matters, among others
There are 26 primers summarized in this report and organized under descriptive headings rather
than by farm bill titles to facilitate accessibility for those who are not familiar with the 2018 farm
bill. The concept behind these primers is to provide relevant information on key programs and
policy initiatives authorized by the 2018 farm bill in a concise format that serves as a quick
reference resource for Members of Congress and congressional staff. To this end, the primers
describe many of the leading programs and policies within the 2018 farm bill. They also identify
some of the higher-profile policy issues that may arise as Congress engages in the process of
writing a new farm bill and highlight some policy options that Congress could consider as it
undertakes this task. The titles of the primers are hyperlinked for easy access.
The primers listed herein also identify CRS subject matter analysts and provide references to
related CRS reports for those who want to explore a specific topic area within the 2018 farm bill
in greater depth or who seek additional analysis on an individual program or policy. For an
overview of the entire 2018 farm bill, see CRS Report R45525, The 2018 Farm Bill (P.L. 115-
334): Summary and Side-by-Side Comparison.
This report summarizes the farm bill primers listed below. The headings of the summaries contain
hyperlinks to the full CRS In Focus products.
• Farm Bill Primer: What Is the Farm Bill?
• Farm Bill Primer: Budget Dynamics
• Farm Bill Primer: Programs Without Baseline Beyond FY2024
• Farm Bill Primer: Farm Safety Net Programs
• Farm Bill Primer: PLC and ARC Farm Support Programs
• Farm Bill Primer: MAL and LDP Farm Support Programs
• Farm Bill Primer: Support for Cotton
• Farm Bill Primer: Support for the Dairy Industry
• Farm Bill Primer: Federal Crop Insurance Program
• Farm Bill Primer: Disaster Assistance
• Farm Bill Primer: Conservation Title
• Farm Bill Primer: Trade and Export Promotion Programs
• Farm Bill Primer: U.S. International Food Assistance Overview
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• Farm Bill Primer: International Food Aid Programs, McGovern-Dole and Local
and Regional Procurement
• International Food Assistance and Agricultural Cargo Preference
• Farm Bill Primer: SNAP and Nutrition Title Programs
• Farm Bill Primer: Beginning and Underserved Producers
• Farm Bill Primer: Support for Native Agricultural Producers
• Farm Bill Primer: Rural Development Title
• Farm Bill Primer: Rural Broadband Provisions
• Farm Bill Primer: Agricultural Research and Extension
• Farm Bill Primer: USDA Support for Aquaculture Operations
• Farm Bill Primer: Forestry Title
• Farm Bill Primer: Energy Title
• Farm Bill Primer: Horticulture Title and Related Provisions
• Farm Bill Primer: Selected Hemp Industry Issues
Overview
CRS In Focus IF12047, Farm Bill Primer: What Is the Farm Bill?, by Renée
Johnson and Jim Monke
This CRS In Focus provides an overview of the multiyear, omnibus legislation known as the farm
bill. In particular, it describes the breadth of agriculture and nutrition policy that the farm bill
authorizes while providing a brief history of the evolution of the farm bill to the present day. It
further reviews estimated costs of the 2018 farm bill by title, including projected costs at the time
of the bill’s enactment and an updated estimate of the budget baseline for mandatory programs for
the next farm bill.
Budget-Related
CRS In Focus IF12233, Farm Bill Primer: Budget Dynamics, by Jim Monke
Congress may consider a new farm bill in 2024 because provisions authorized in the 2018 farm
bill (P.L. 115-334) begin expiring at the end of FY2024. From a budgetary perspective, many
farm bill programs are assumed to continue. This report discusses the two types of funding—
mandatory spending and discretionary authorizations—and the implications of each for farm bill
budgeting and program continuity. Farm bill programs have nearly $1.5 trillion of mandatory
funding available for the next 10 years. It also addresses supplemental funding in recent years,
which may influence policy expectations for a new farm bill.
CRS In Focus IF12115, Farm Bill Primer: Programs Without Baseline Beyond
FY2024, by Jim Monke
In preparation for a next farm bill, Congress may consider a subset of 21 programs in the 2018
farm bill that do not have a budget baseline for funding beyond FY2024. This In Focus identifies
these 21 programs, which received a total of $906 million of mandatory funding during the five
years of the 2018 farm bill and $177 million during the one-year extension. Programs that receive
mandatory funding do not require annual discretionary appropriations. Reauthorizing farm bill
programs without baseline would have a positive score (cost) and therefore would likely need to
be offset by reductions elsewhere.
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Commodity Programs and Farm Support
CRS In Focus IF12218, Farm Bill Primer: Farm Safety Net Programs, by
Stephanie Rosch
The so-called federal “farm safety net” is a collection of programs administered by the U.S.
Department of Agriculture (USDA) that provide risk protection and income support to farmers in
the United States who experience natural disasters, adverse growing conditions, and/or low
market prices. Farm safety net programs fall into three categories: the federal crop insurance
program (FCIP), standing agricultural disaster programs, and agricultural commodity support
programs. The FCIP and standing agricultural disaster programs are permanently authorized
under various laws. The commodity support programs are authorized through the 2024 crop year.
CRS In Focus IF12114, Farm Bill Primer: PLC and ARC Farm Support Programs,
by Stephanie Rosch
The Price Loss Coverage (PLC) and the Agriculture Risk Coverage (ARC) programs provide
income support to producers of certain eligible commodities. The amount of support varies by
commodity and from year-to-year based on program enrollments and market conditions. These
programs are authorized through the 2024 crop year. The 2018 farm bill reauthorized these
programs with relatively minor changes that expanded support available to producers. This CRS
In Focus addresses significant features of these programs and identifies selected issues that
Congress could consider as it debates a next farm bill.
CRS In Focus IF12140, Farm Bill Primer: MAL and LDP Farm Support
Programs, by Stephanie Rosch
The Marketing Assistance Loan (MAL) program has been a significant feature of U.S. farm
policy since the 1930s. The MAL program provides loans to farmers that are collateralized by
eligible stored commodities and provides price support to borrowers when market prices drop
below levels specified in statute. Congress has authorized the Loan Deficiency Payment (LDP)
program since the 1980s. The LDP program provides payments to farmers eligible to receive
price support under the MAL program. Farmers must meet eligibility requirements for these
programs and cannot receive both MAL and LDP benefits for the same commodity. These
programs are authorized through the 2024 crop year.
CRS In Focus IF12195, Farm Bill Primer: Support for Cotton, by Stephanie
Rosch
The United States is the world’s third-largest cotton producer and the leading cotton exporter,
accounting for nearly one-third of global trade in raw cotton. Between 2000 and 2020, U.S.
cotton production decreased by more than 15%, and U.S. textile mill usage decreased by more
than 80%. Title I of the 2018 farm bill reauthorized commodity support for domestic producers of
cotton, including support that had been previously eliminated in the Agricultural Act of 2014
(2014 farm bill; P.L. 113-79). Titles I and XII of the 2018 farm bill reauthorized support for
domestic users of cotton for various periods. Certain programs are authorized through the 2024
crop year. In addition, the Secretary of Agriculture has taken measures, outside of the farm bill
programs, to support cotton producers.
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CRS In Focus IF12202, Farm Bill Primer: Support for the Dairy Industry, by Joel
L. Greene
The 2018 farm bill provides support to the dairy industry through a variety of programs. The
Dairy Margin Coverage (DMC), enacted in the 2018 farm bill, is the primary program that
provides income support to milk producers. The DMC allows milk producers to buy a guaranteed
margin—calculated as the all milk price minus feed costs—for their milk production. Each year,
participating dairy producers choose a margin coverage level and the share of their milk
production history to cover. They receive DMC payments for months in which the margin is
triggered based on USDA’s calculation of the milk-feed margin. This program is authorized
through December 31, 2024.
CRS In Focus IF12201, Farm Bill Primer: Federal Crop Insurance Program, by
Stephanie Rosch
The federal crop insurance program (FCIP) helps make insurance coverage available to farmers
from private sector insurers to help mitigate potential financial consequences of adverse growing
and market conditions. USDA regulates the policies offered and subsidizes the premiums that
farmers pay in order to encourage farmer participation in the program. Premium subsidies
covered about 62% of the total premium on average for all policies sold in 2021. Since its
inception in 1938, the FCIP has grown from an ancillary program with low participation to a
central pillar of federal farm support, with more than 444 million acres and $150 billion in crop
and livestock value insured in 2021. The FCIP is permanently authorized, but Congress has
modified it in various ways in periodic farm bills.
CRS In Focus IF12101, Farm Bill Primer: Disaster Assistance, by Megan Stubbs
A number of federal programs help agricultural producers recover from the effects of natural
disasters, including federal crop insurance, the Noninsured Crop Disaster Assistance Program,
livestock and fruit tree disaster programs, and emergency disaster loans. All programs are
permanently authorized, and most receive “such sums as necessary” through mandatory spending
authority. As such, these programs did not require reauthorization in the 2018 farm bill.
Conservation
CRS In Focus IF12024, Farm Bill Primer: Conservation Title, by Megan Stubbs
The conservation title of a farm bill generally contains a number of reauthorizations,
amendments, and new programs that encourage farmers and ranchers to implement resource-
conserving practices on private land. Starting in 1985, farm bills have addressed a broader range
of topics as “conservation.” Conservation programs administered by USDA can be grouped into
the following categories based on similarities: working land programs, land retirement programs,
easement programs, partnership programs, conservation compliance, and other overarching
provisions.
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Trade, Export Promotion, and International Food Assistance
CRS In Focus IF12155, Farm Bill Primer: Trade and Export Promotion
Programs, by Renée Johnson
Agricultural exports are significant to farmers and the U.S. economy. With the productivity of
U.S. agriculture growing faster than domestic demand, farmers and agriculturally oriented firms
rely heavily on export markets to sustain prices and revenue. The trade title of the 2018 farm bill
(P.L. 115-334) authorizes programs to expand foreign markets for U.S. farmers and food
manufacturers through export market development programs and export credit guarantee
programs. These programs are authorized through FY2024.
CRS In Focus IF12067, Farm Bill Primer: U.S. International Food Assistance
Overview, by Amber D. Nair
The U.S. government administers international food assistance programs that aim to alleviate
hunger and improve food security around the world. Some provide emergency assistance to
people affected by conflict or natural disaster while others provide nonemergency assistance to
help communities improve agricultural productivity and strengthen local food systems. This In
Focus provides an overview of U.S. international food assistance programs, including legislative
authority, funding trends, and statutory requirements, and identifies selected issues for Congress.
CRS In Focus IF12081, Farm Bill Primer: International Food Aid Programs,
McGovern-Dole and Local and Regional Procurement, by Amber D. Nair
The U.S. government administers international food assistance programs that aim to alleviate
hunger and improve food security around the world. USDA administers the McGovern-Dole
International Food for Education and Child Nutrition Program and the Local and Regional
Procurement Program. These two programs have several parallel provisions that aim to achieve
the same goal of providing nonemergency food aid in an effort to help communities boost
agricultural productivity, strengthen local food systems, and improve nutrition. This In Focus
addresses these two programs, identifying their legislative authority, statutory requirements,
funding trends, recent projects, and selected issues for Congress.
CRS In Focus IF12018, International Food Assistance and Agricultural Cargo
Preference, by Amber D. Nair
The United States is the largest provider of international food assistance globally. Approximately
40% of funding for such assistance in FY2020 was used to purchase and ship food grown in the
United States, referred to as “U.S. in-kind assistance,” to countries in need. Such commodities are
subject to U.S.-flag shipping requirements under the Cargo Preference Act of 1954 (P.L. 83-664),
as amended. Cargo preference requirements long have been controversial and the subject of
considerable debate, both in Congress and throughout the food assistance stakeholder community.
This In Focus identifies changes in cargo preference requirements over time and highlights some
possible issues for Congress to consider.
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Domestic Nutrition
CRS In Focus IF12255, Farm Bill Primer: SNAP and Nutrition Title Programs,
by Randy Alison Aussenberg, Gene Falk, and Kara Clifford Billings
The nutrition title of the farm bill typically reauthorizes a number of nutrition or domestic food
assistance programs, including the Supplemental Nutrition Assistance Program (SNAP, formerly
the Food Stamp Program). These programs were reauthorized by the 2018 farm bill and extended
by P.L. 118-22. They are authorized through September 30, 2024. In a subsequent farm bill’s
nutrition title, policymakers might revisit 2018 debates and decisions and consider new
challenges and questions, including temporary changes made during the COVID-19 pandemic.
New, Beginning, Underserved, and Veteran Farmers and Ranchers
CRS In Focus IF12096, Farm Bill Primer: Beginning and Underserved Producers,
by Renée Johnson
Beginning farmers and ranchers—generally defined as having operated a farm or ranch for no
more than 10 years—comprise a significant part of the U.S. agricultural sector. They contribute to
rural and non-rural economies and are considered to be critical given ongoing concerns about the
aging U.S. farm population, the “disappearing middle” (i.e., mid-sized farms both in terms of
farm numbers and value of sales), and general trends toward increasing consolidation and fewer,
larger farms. The 2018 farm bill reauthorized and expanded programs administered by USDA that
support new farmers and ranchers. These programs targeted new farmers within specific farm
demographic groups based on age, race, and gender, as well as socially disadvantaged
(underserved) farmers and farmers who are military veterans.
CRS In Focus IF12160, Farm Bill Primer: Support for Native Agricultural
Producers, by Renée Johnson
In 2017, Native agricultural producers accounted for 2% of all U.S. producers. The 2018 farm bill
(P.L. 115-334) expanded federal farm program support for Native agricultural producers and
tribal communities. Congress further enhanced community and economic development for tribes
in the Indian Community Economic Enhancement Act of 2020 (P.L. 116-261) and provided
additional support for historically underserved agricultural producers, including Native producers,
in the American Rescue Plan Act of 2021 (P.L. 117-2).
Rural Development
CRS In Focus IF12038, Farm Bill Primer: Rural Development Title, by Lisa S.
Benson
Omnibus farm bills are the major modern legislative vehicle for addressing many rural
development issues. Since 1973, omnibus farm bills have included a rural development title,
which has included USDA Rural Development programs focused on rural utility systems (i.e.,
water, waste disposal, electricity, and broadband), rural business, and rural housing. The USDA
Rural Business-Cooperative Service, USDA Rural Utilities Service, and USDA Rural Housing
Service administer these programs. Most USDA Rural Development programs rely on
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discretionary funding, which Congress authorizes in farm bills and funds through the annual
appropriations process.
CRS In Focus IF12041, Farm Bill Primer: Rural Broadband Provisions, by Lisa
S. Benson
Congress has included provisions addressing rural broadband (i.e., high-speed internet access) in
the rural development title of omnibus farm bills since 2002. The 2018 farm bill amended and
reauthorized many of the rural broadband programs administered by USDA. This In Focus
provides background information on USDA rural broadband programs and an overview of
selected rural broadband provisions in the 2018 farm bill and identifies some issues that Congress
could consider as it debates a next farm bill.
Research, Extension, and Related Matters
CRS In Focus IF12023, Farm Bill Primer: Agricultural Research and Extension,
by Eleni G. Bickell
The research title addresses research, extension, and education at land-grant universities (LGUs)
and other nonfederal institutions, as well as departmental policies, programs, and research within
USDA. Most of the research title programs require annual discretionary appropriations; a few
programs receive mandatory spending. This In Focus provides background information and
discusses selected 2018 farm bill provisions and issues for a next farm bill related to agricultural
research, extension, and education, including funding.
CRS In Focus IF12275, Farm Bill Primer: USDA Support for Aquaculture
Operations, by Renée Johnson
Aquaculture facilities that grow aquatic animal and plant species in controlled or selected
environments are generally eligible for the same support from USDA that is available to all U.S.
farmers, ranchers, and producers. The 2018 farm bill reauthorized and expanded provisions
specifically related to USDA’s aquaculture research and assistance programs. Aquaculture
producers are also eligible for other USDA competitive grants available to all U.S. agricultural
producers. Aquaculture stakeholders have identified a number of policy recommendations in
support of the industry, some of which Congress could address in the next farm bill.
Forestry
CRS In Focus IF12054, Farm Bill Primer: Forestry Title, by Anne A. Riddle
Forest management generally, as well as forest research and forestry assistance, is often
considered by the agriculture committees in Congress. Although most forestry programs are
permanently authorized, forestry is often addressed in the periodic farm bills to reauthorize many
agriculture programs. The 2018 farm bill included a separate forestry title, and this In Focus
summarizes some of the forestry provisions addressed in the 2018 farm bill and related issues that
Congress may debate as it considers a next farm bill.
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Agricultural Energy
CRS In Focus IF10639, Farm Bill Primer: Energy Title, by Kelsi Bracmort
The 2018 farm bill contained 12 titles that addressed agricultural and food programs and Title IX,
the energy title. The 2018 farm bill was the fourth farm bill to contain an energy title. The energy
title is primarily focused on support for renewable energy—particularly agriculture-related
energy, energy efficiency, and bioproducts (e.g., cleaning supplies). This In Focus summarizes the
2018 farm bill energy title, including mandatory versus discretionary funding amounts, as a basis
for informing discussions on the next farm bill while identifying issues that Congress could
consider as part of that process.
Horticulture, Specialty Crops, and Organic Farming
CRS In Focus IF12017, Farm Bill Primer: Horticulture Title and Related
Provisions, by Renée Johnson
The 2018 farm bill reauthorized and expanded funding for many of the existing USDA programs
supporting fruits, vegetables, and other specialty crops while providing support for many locally
sourced products (not limited to crops) and cultivation of hemp. Support for these sectors,
however, is not limited to the horticulture title but is also contained within other farm bill titles,
covering a range of programs administered by USDA. This In Focus provides an overview of
selected 2018 farm bill provisions and issues for a next farm bill related to specialty crops,
organically produced and locally sourced products, and hemp.
CRS In Focus IF12278, Farm Bill Primer: Selected Hemp Industry Issues, by
Renée Johnson
The 2018 farm bill legalized hemp by removing hemp from the definition of marijuana in the
Controlled Substances Act. It also directed USDA to create a framework to regulate hemp
cultivation under federal law and facilitate commercial cultivation, processing, marketing, and
sale of hemp and hemp-derived products. Other 2018 farm bill provisions made hemp producers
eligible for federal crop insurance and agricultural research programs. Further to these policy
changes in the 2018 farm bill, a number of hemp stakeholders are advocating for additional
changes via the next farm bill, such as relaxing some USDA regulatory requirements and
reducing the Drug Enforcement Administration’s role in regulating hemp.

Author Information

Frank Gottron

Section Research Manager

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under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other
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