Programs Without a Budget Baseline at the End of the 2008 Farm Bill

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Programs Without a Budget Baseline at the

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April 11, 2014

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R41433

Programs Without a Budget Baseline at the End of the 2008 Farm Bill

Summary

The 2008 farm bill (the Food, Conservation, and Energy Act of 2008, P.L. 110-246 provided

mandatory funding for many programs. Some of these programs had budget baseline beyond the

end of the farm bill in FY2012, while others did not. Those with continuing baseline essentially

had built-in future funding if policy makers decided that the programs should continue.

However, 37 programs that received mandatory funds during the 2008 farm bill were not assumed

to continue from a budgetary perspective because they did not have a budgetary baseline beyond

FY2012. Notable programs among this group included certain agricultural disaster assistance

programs, specialty crop research, organic research and certification, beginning and socially

disadvantaged farmer programs, rural development, bioenergy, farmers market promotion

programs, and some conservation programs. If policy makers wanted to continue these programs

in the 2014 farm bill, they needed to pay for the programs with budgetary offsets.

Depending on the approach used to estimate the cost to extend the 37 programs for five years, an

estimated $9 billion to $14 billion of offsets from other sources was needed. This was nearly 3%

of the five-year CBO baseline used to write the 2014 farm bill (FY2014-FY2018), or 14% of the

five-year baseline if the nutrition title is excluded. Finding this level of offsets sometimes was

difficult in a tight budget environment, especially when many observers believed that some of the

farm bill baseline would be used for deficit reduction.

The enacted 2014 farm bill provides 29 of these 37 programs with new mandatory funding that

totals $6.2 billion over the five-year period FY2014-FY2018.

Congressional Research Service

Programs Without a Budget Baseline at the End of the 2008 Farm Bill

Contents

Farm Bill Programs Without Baseline After FY2012 ...................................................................... 1

Determining Programs That Do Not Have Baseline........................................................................ 1

Status in the 2014 Farm Bill of the 2008 Farm Bill Programs Without Baseline ............................ 2

Tables

Table 1. Status in the 2014 Farm Bill of the 37 Programs in the 2008 Farm Bill Without

Baseline ........................................................................................................................................ 3

Table A-1. Identification of Programs in the 2008 Farm Bill Without Budget Baseline

After FY2012.............................................................................................................................. 14

Table B-1. Status in the Extension of the 2008 Farm Bill, and Farm Bill Proposals in

2012, of the 37 Programs in the 2008 Farm Bill Without Baseline ............................................ 20

Appendixes

Appendix A. Identification of Programs in the 2008 Farm Bill Without Budget Baseline

After FY2012.............................................................................................................................. 11

Appendix B. Status of Programs Without Baseline in the 2012 Farm Bill Extension and

Proposals..................................................................................................................................... 19

Contacts

Author Contact Information........................................................................................................... 27

Acknowledgments ......................................................................................................................... 27

Congressional Research Service

Programs Without a Budget Baseline at the End of the 2008 Farm Bill

Farm Bill Programs Without Baseline After FY2012

The 2008 farm bill (the Food, Conservation, and Energy Act of 2008, P.L. 110-246)—as extended

by the American Taxpayer Relief Act of 2012 (P.L. 112-240)—authorized most federal farm and

food policies through the end of 2013.1 The Congressional Budget Office (CBO) baseline—a

projection at a particular point in time of what future federal spending on mandatory programs

would be under current law—serves as a benchmark for assessing changes.2 When new bills

affect mandatory spending, the impact (score) is measured as a difference from the baseline.3

Some 2008 farm bill programs had baseline beyond the end of the farm bill, while others did not.

This funding issue—and the difficult budget dynamics that it caused for developing the 2014

farm bill—was identified by the chief economist of the House Agriculture Committee in early

2009.4 It was mentioned in Agriculture Committee hearings beginning in 2010.5

From a budget perspective, programs with a continuing baseline are assumed to go on under

current law, and have their own funding if policy makers want them to continue.

However, 37 provisions or programs that received mandatory funding in the 2008 farm bill did

not have baseline beyond the end of the farm bill and were not assumed to continue under budget

rules. These programs spanned most titles of the 2008 farm bill and could have cost between $9

billion to $14 billion to extend for five years, depending on the estimation approach (Table 1).

These amounts were nearly 3% of the $484 billion five-year baseline available to write the 2014

farm bill, or 14% of the $100 billion five-year baseline if the nutrition title was excluded.6

Notable programs among this group were certain agricultural disaster programs, specialty crop

research, organic research and certification, beginning/socially disadvantaged farmer programs,

rural development, bioenergy, farmers market promotion, and some conservation programs.

Determining Programs That Do Not Have Baseline

CBO develops the budget baseline under the supervision of the House and Senate Budget

Committees. Normally, a program that receives mandatory funding in the last year of its

authorization will be assumed to continue in the baseline as if there were no change in policy.

This allows major provisions such as the farm commodity programs or nutrition assistance to be

reauthorized without assuming that funding will cease or following zero-based budgeting.

For more background on the scope of a farm bill, see CRS Report RS22131, What Is the Farm Bill?. For information

about the extension, see CRS Report R42442, Expiration and Extension of the 2008 Farm Bill.

See CRS Report 98-560, Baselines and Scorekeeping in the Federal Budget Process.

See CRS Report R41157, The Statutory Pay-As-You-Go Act of 2010: Summary and Legislative History.

Craig Jagger, Economist for the House Agriculture Committee, slides 53-54 in “Understanding the Congressional

Budget Process and How It Affects Farm Policy,” April 21, 2009, at http://agribus.uark.edu/Craig_Jagger_lecture.ppt.

“[S]topping funding early means that the program does not earn a baseline. Without a baseline, there are no funds for

continuing the program… New funding will need to be found for the 2012 farm bill to continue [these] programs.”

For example: Frank Lucas, Chair of House Agriculture Committee (then ranking Member), at “Hearing to Preview

U.S. Agriculture Policy in Advance of the 2012 Farm Bill,” April 21, 2010. “This next farm bill is shaping up to be one

of the most difficult.... Many... programs do not have funding past 2012. In essence, we already start with a deficit.”

See CRS Report R42484, Budget Issues That Shaped the 2014 Farm Bill.

Congressional Research Service

Programs Without a Budget Baseline at the End of the 2008 Farm Bill

However, some programs may not be assumed to continue in the budget baseline beyond the end

of a farm bill because:

•

the program did not receive new mandatory budget authority during the last year

of a farm bill, or

•

the baseline during the last year of a farm bill is below a minimum $50 million

scoring threshold that is needed to continue a baseline, or

•

the Budget Committees and Agriculture Committees did not agree to give the

program a baseline in the years beyond the end of the farm bill—either to reduce

the program’s 10-year cost at the time the farm bill was written, or to prevent it

from having a continuing baseline.7

Status in the 2014 Farm Bill of the 2008 Farm Bill

Programs Without Baseline

The enacted 2014 farm bill provides 29 of these 37 programs with new mandatory funding that

totals more than $6.2 billion over the five-year period FY2014-FY2018 (Table 1).8 A few

programs even received permanent baseline for the second five years, including the Specialty

Crop Research Initiative and the Rural Energy for America Program, or were incorporated into

other programs.

The enacted law provides more mandatory funding to more of these 37 programs than either the

House or Senate proposals. The combination of House-passed farm bills (H.R. 2642) would have

provided about $4.9 billion of mandatory funding (over five years) to 14 of the programs. The

Senate-passed farm bill (S. 954) would have provided more than $4.5 billion of mandatory

funding for 25 of the programs (Table 1).

The funding offset for these provisions comes from the larger reductions in mandatory spending

in the 2014 farm bill, mostly from reductions in the farm commodities title.9

The one-year extension of the 2008 farm bill in the American Taxpayer Relief Act of 2012 (P.L.

112-240) did not provide any additional mandatory funding for any of the 37 programs without

baseline. Therefore these programs did not have any mandatory funding in FY2013. In lieu of

mandatory funding, the one-year farm bill extension made numerous “authorizations of

appropriations” to allow discretionary funding for FY2013, but this did not provide funding.

Discretionary funding could have been provided (but was not) by the appropriations committees

in the FY2013 Agriculture appropriation. The proposals in 2012 that preceded the extension, but

that were not enacted, did envision funding for many of these programs (Table B-1).

Section 257 of the Balanced Budget and Emergency Deficit Control Act of 1985 (P.L. 99-177, 2 U.S.C. 907), as

amended, specifies that expiring mandatory spending programs are assumed to continue in the budget baseline if they

have outlays of more than $50 million in the current year and were established before the Balanced Budget Act of

1997. Programs established later are not automatically assumed to continue, and are assessed program by program in

consultation with the House and Senate Budget Committees. (CBO, The Budget and Economic Outlook: Fiscal Years

2013 to 2023, p. 22, at http://cbo.gov/sites/default/files/cbofiles/attachments/43907-BudgetOutlook.pdf).

A definitive total is not possible because some programs are combined and necessary budget details are unknown.

See CRS Report R42484, Budget Issues That Shaped the 2014 Farm Bill.

Congressional Research Service

Table 1. Status in the 2014 Farm Bill of the 37 Programs in the 2008 Farm Bill Without Baseline

(program provisions and mandatory budget authority)

2008 farm bill

P.L. 110-246

2013 farm bill proposals

$ million

(5 yrs.)

Senate-passed S. 954

$ million

(5 yrs.)

House-passed H.R. 2642 and

H.R. 3102

Enacted 2014 farm bill

$ million

(5 yrs.)

Agricultural Act of 2014

(P.L. 113-79)

$ million

(5 yrs.)

Farm Commodity Programs

Implementation of Title I. $50

million in FY2009. [Sec. 1622]

Provides $97 million of

mandatory funds to implement

Title I. [Sec. 1614]

Provides $100 million of

mandatory funds to implement

Title I. [Sec. 1612]

100

Provides $100 million of mandatory

funds to implement Title I, and an

additional $20 million for meeting

benchmarks. [Sec. 1612]

120

Wetlands Reserve Program. 3.04

million acres to be enrolled

through FY2012. Added $128

million-$338 million of costs to

baseline annually through 2012.

[Sec. 2202]

2,100

Establishes the Agricultural

Conservation Easement

Program (ACEP). Combines the

purposes of WRP, FPP, and

GRP. [Sec. 2301(a), Sec. 2703]

Part of

ACEP

Minor differences compared with

Senate bill. [Sec. 2301(a), Sec.

2703]

Part of

ACEP

Similar to the Senate and House

bills. [Sec. 2301(a)]

Part of

ACEP

Grassland Reserve Program. 1.22

million additional acres to be

enrolled FY2009-2012. Added $63

million-$80 million of costs to

baseline annually through 2012.

[Sec. 2403]

300

Establishes the Agricultural

Conservation Easement

Program (ACEP). Incorporates

GRP easements rental

agreements. [Sec. 2301(a)]

Part of

ACEP

Nearly identical to the Senate bill

with minor differences. [Sec.

2301(a)]

Part of

ACEP

Similar to the Senate and House

bills. [Sec. 2301(a)]

Part of

ACEP

Voluntary Public Access and

Habitat Incentive. $50 million for

FY2009-2012, [Sec. 2606]

Authorizes $40 million of

mandatory funding for FY2014FY2018. [Sec. 2503]

Authorizes $30 million of

mandatory funding for the period

of FY2014-FY2018. [Sec. 2503]

Similar to the Senate bill. [Sec.

2503]

Small Watershed Rehabilitation

Program. $100 million in FY2009,

to remain available until expended.

Discretionary appropriations

authorized. [Sec. 2803]

100

Does not authorize additional

mandatory funding. Extends

authorization of appropriations

for discretionary funding

through FY2018. [Sec. 2505]

Authorizes $250 million in

mandatory funds for FY2014,

available until expended. Extends

discretionary authorization to

FY2018. [Sec. 2505]

250

Identical to the House bill. [Sec.

2505]

250

Conservation

CRS-3

2008 farm bill

P.L. 110-246

Desert Terminal Lakes. $175

million in FY2008, to remain

available (transfer from USDA to

Dept. of Interior. [Sec. 2807]

2013 farm bill proposals

$ million

(5 yrs.)

Senate-passed S. 954

$ million

(5 yrs.)

175

Transfers $150 million of CCC

funds to the Bureau of

Reclamation, among other

program changes. [Sec. 2507]

150

McGovern-Dole International

Food for Education and Child

Nutrition Program. $84 million in

FY2009, to remain available until

expended. [Sec. 3106]

Does not authorize additional

mandatory funding. Extends

authorization of appropriations

for discretionary funding

through FY2018. [Sec. 3204]

Local and Regional Food Aid

Procurement Projects. $5 million

in FY2009, $25 million in FY2010

and FY2011, and $5 million in

FY2012. [Sec. 3206]

Pilot projects evaluate health and

nutrition promotion in SNAP. $20

million of mandatory funds in

FY2009. [Sec. 4141]

Study on Comparable Access to

Supplemental Nutrition Assistance

for Puerto Rico. $1 million of

mandatory funds in FY2009, to

remain available until expended.

[Sec. 4142]

House-passed H.R. 2642 and

H.R. 3102

Enacted 2014 farm bill

$ million

(5 yrs.)

Agricultural Act of 2014

(P.L. 113-79)

$ million

(5 yrs.)

No comparable provision.

Nearly identical to the Senate bill.

[Sec. 2507]

150

Same as the Senate bill. [Sec. 3204]

Identical to the Senate and House

bills. [Sec. 3204]

No mandatory funding.

Establishes a procurement

program with authorized

appropriations of $60 million

for each of FY2014 through

FY2018. [Sec. 3207]

No comparable provision.

Similar to the Senate bill, but

authorizes appropriations of $80

million for each fiscal year FY2014FY2018. [Sec. 3207]

Provides $100 million in

mandatory funding over 5 years

for grants that incentivize fruits

and vegetables in SNAP. [Sec.

4204]

100

No comparable provision.

Similar to the Senate bill, but names

it “Food Insecurity Nutrition

Initiative." Provides $100 million in

mandatory funding over 5 years.

[Sec. 4208]

100

No comparable provision.

32.5 Similar to the House provision for

Commonwealth of the Northern

Mariana Islands [Sec. 4031]. Also,

provides $1 million of mandatory

funding to study Puerto Rico’s 25%

cash practice [Sec. 4025].

33.5

Trade

Nutrition

CRS-4

Similar program, different region.

For Commonwealth of the

Northern Mariana Islands, $1

million mandatory funds in FY2014

and FY2015 to study SNAP

administration; $13.5 million

program in FY2016, $8.5 million in

each of FY2017 and FY2018. [Sec.

132 of H.R. 3102]

2008 farm bill

P.L. 110-246

2013 farm bill proposals

$ million

(5 yrs.)

Senate-passed S. 954

$ million

(5 yrs.)

House-passed H.R. 2642 and

H.R. 3102

Enacted 2014 farm bill

$ million

(5 yrs.)

Agricultural Act of 2014

(P.L. 113-79)

$ million

(5 yrs.)

Whole Grain Products (for school

lunches and breakfasts). $4 million

of Section 32 funds in FY2009.

[Sec. 4305]

Authorizes appropriations for a

pilot project to purchase pulse

crops, analogous to the wholegrain pilot [Sec. 4206].

No comparable provision.

Identical to the Senate bill. [Sec.

4213]

Survey of Foods Purchased by

School Authorities. $3 million in

FY2009. [Sec. 4307]

No comparable provision.

Healthy Urban Food Enterprise

Development Center. $1 million in

FY2009-2011. [Sec. 4402]

No comparable provision.

Rural Microentrepreneur

Assistance Program. $4 million in

each of FY2009-2011 and $3

million in FY2012. [Sec. 6022]

Provides $3 million annually in

mandatory spending for

FY2014-FY2018. Reauthorizes

discretionary funding. [Sec.

6001]

No mandatory funding.

Reauthorizes discretionary funding

at $20 million annually for FY2014FY2018. [Sec. 6018]

Adopts the Senate provision for $3

million of mandatory funding for 5

years, and authorizes

appropriations of $40 million per

year. [Sec. 6023]

Funds Pending Loan and Grant

Applications. $120 million in

FY2008, to reduce a backlog of

applications. [Sec. 6029]

120

Provides for one-time

mandatory funding of $150

million for pending rural

development loan and grant

applications. [Sec. 6204]

150

No comparable provision.

Adopts Senate provision. [Sec.

6210]

150

Value-Added Agricultural Market

Development Program Grants.

$15 million in FY2009, to remain

available until expended. [Sec.

6202]

Authorizes $12.5 million

annually in mandatory spending

for FY2014-FY2018.

Reauthorizes discretionary

funding at $40 million annually

to FY2018. [Sec. 6001]

62.5 Provides $50 million mandatory

funding to remain available until

expended. Reauthorizes

discretionary funding of $50

million annually to FY2018. [Sec.

6202]

Provides $63 million mandatory

funding to remain available until

expended. Reauthorizes

discretionary funding. [Sec. 6203]

Rural Development

Research

CRS-5

2008 farm bill

P.L. 110-246

2013 farm bill proposals

$ million

(5 yrs.)

Senate-passed S. 954

Enacted 2014 farm bill

$ million

(5 yrs.)

House-passed H.R. 2642 and

H.R. 3102

$ million

(5 yrs.)

Agricultural Act of 2014

(P.L. 113-79)

$ million

(5 yrs.)

Organic Agriculture Research and

Extension Initiative. $18 million in

FY2009, and $20 million in each of

FY2010-2012. [Sec. 7206]

Provides CCC funds of $16

million for each year FY2014FY2018; extends authority for

appropriations through FY2018.

[Sec. 7209]

Provides CCC funds of $20 million

for each year FY2014-FY2018;

extends authority for

appropriations through FY2018.

[Sec. 7211]

100

Similar to the House bill. [Sec.

7211]

100

Specialty Crop Research Initiative.

$30 million in FY2008, and $50

million in each of FY2009-2012.

[Sec. 7311]

230

Provides mandatory funds of

$25 million (FY2014); $30

million annually (FY2015FY2016); $65 million (FY2017);

and $50 million (FY2018 and

thereafter). [Sec. 7305]

200

Provides mandatory funds of $50

million annually (FY2014-FY2015);

$55 million (FY2016-FY2017); and

$65 million (FY2018 and each fiscal

year thereafter). [Sec. 7307]

275

Provides mandatory funds of $80

million annually in FY2014 and each

fiscal year thereafter. [Sec. 7306]

400

Beginning Farmer and Rancher

Development. $18 million in

FY2009, and $19 million in each of

FY2010-2012. [Sec. 7410]

Provides mandatory funding of

$17 million per year for

FY2014-FY2018 (to be available

until expended). [Sec. 7408]

Mandatory annual funding at $20

million per year for FY2014FY2018 (to be available until

expended). [Sec. 7410]

100

Similar to the House bill. [Sec.

7409]

100

No mandatory funding.

Provides authorization to

receive discretionary

appropriations. [Sec. 8205]

Same as the Senate bill. [Sec. 8203]

Similar to the Senate bill. [Sec.

8203]

Biobased Markets Program. $1

million in FY2008, and $2 million

each year for FY2009-2012. [Sec.

9002]

Authorizes mandatory funding

of $3 million annually for

FY2014-FY2018. [Sec. 9002]

No mandatory funding is

authorized. Authorizes to be

appropriated $2 million annually

for FY2014-FY2018. [Sec. 9002]

Similar to the Senate bill. [Sec.

9002]

Biorefinery Assistance. $75 million

in FY2009, and $245 million in

FY2010. [Sec. 9003]

320

Authorized mandatory funding

of $100 million for FY2014 and

$58 million each for FY2015FY2016. [Sec. 9003]

216

No mandatory funding is

authorized. Authorizes to be

appropriated $75 million annually

for FY2013-FY2017. [Sec. 9003]

Authorized mandatory funding of

$100 million for FY2014 and $50

million each for FY2015-FY2016.

[Sec. 9003]

200

Forestry

Healthy Forests Reserve Program.

$9.75 million each year FY20092012, available until expended.

[Sec. 8205]

Energy

CRS-6

2008 farm bill

P.L. 110-246

2013 farm bill proposals

$ million

(5 yrs.)

Senate-passed S. 954

Enacted 2014 farm bill

$ million

(5 yrs.)

House-passed H.R. 2642 and

H.R. 3102

$ million

(5 yrs.)

Agricultural Act of 2014

(P.L. 113-79)

$ million

(5 yrs.)

Repowering Assistance. $35

million in FY2009, to remain

available until expended. [Sec.

9004]

No comparable provision.

No mandatory funding. Authorize

to be appropriated $10 million

annually FY2014-FY2018. [Sec.

9004]

Similar to the House bill, except

provides $12 million of mandatory

funding in FY2014, available until

expended. [Sec. 9004]

Bioenergy Program for Advanced

Biofuels. $55 million in FY20092010, $85 million in FY2011, and

$105 million in FY2012. [Sec.

9005]

300

No mandatory funding is

authorized. Authorizes to be

appropriated $20 million

annually for FY2014-FY2018.

[Sec. 9004]

No mandatory funding. Authorizes

to be appropriated $50 million

annually FY2014-FY2018. [Sec.

9005]

Provides $15 million each fiscal

year FY2014-FY2018, to remain

available until expended. [Sec.

9005]

Biodiesel Fuel Education Program.

$1 million in each of FY2008-2012.

[Sec. 9006]

Authorizes mandatory funding

of $1 million annually for

FY2014-FY2018. [Sec. 9005]

No mandatory funding is

authorized. Authorizes to be

appropriated $2 million annually

for FY2014-FY2018. [Sec. 9006]

Identical to the Senate bill. [Sec.

9006]

Rural Energy For America

Program (REAP). $55 million in

FY2009, $60 million in FY2010,

and $70 million in each of FY20112012. [Sec. 9007]

255

Authorizes mandatory funding

of $68.2 million annually for

FY2014-FY2018. Authorizes to

be appropriated $20 million

annually for FY2014-FY2018.

[Sec. 9006]

341

No mandatory funding is

authorized. Authorizes to be

appropriated $45 million annually

for FY2014-FY2018. [Sec. 9007]

Provides $50 million of mandatory

funding in FY2014 and each fiscal

year thereafter. [Sec. 9007]

250

Biomass Research and

Development. $20 million in

FY2009, $28 million in FY2010,

$30 million in FY2011, and $40

million in FY2012. [Sec. 9008]

118

Authorizes mandatory funding

of $26 million annually for

FY2014-FY2018. Authorizes to

be appropriated $30 million

annually for FY2014-FY2018.

[Sec. 9007]

130

No mandatory funding is

authorized. Authorizes to be

appropriated $20 million annually

for FY2014-FY2018. [Sec. 9008]

Authorizes mandatory funding of

$3 million annually for FY2014FY2017. Authorizes to be

appropriated $20 million annually

for FY2014-FY2018. [Sec. 9008]

Biomass Crop Assistance Program.

Such sums as necessary of

mandatory funds for FY2008-2012.

[Sec. 9011]

120

Authorizes mandatory funding

of $38.6 million annually for

FY2014-FY2018. [Sec. 9009]

193

No mandatory funding is

authorized. Authorizes to be

appropriated $75 million annually

for FY2014-FY2018. [Sec. 9010]

Authorizes mandatory funding of

$25 million annually for FY2014FY2018. [Sec. 9010]

125

Horticulture and Organic Agriculture

CRS-7

2008 farm bill

P.L. 110-246

2013 farm bill proposals

$ million

(5 yrs.)

Senate-passed S. 954

Enacted 2014 farm bill

$ million

(5 yrs.)

House-passed H.R. 2642 and

H.R. 3102

$ million

(5 yrs.)

Agricultural Act of 2014

(P.L. 113-79)

$ million

(5 yrs.)

Farmers’ Market Promotion

Program. $3 million in FY2008, $5

million in each of FY2009-2010,

and $10 million in each of FY20112012. [Sec. 10106]

Increases mandatory funding to

$20 million annually (FY2014FY2018); authorizes $20 million

discretionary each year

FY2014-FY2018. [Sec. 10003]

100

Increases mandatory funding to

$30 million annually (FY2014FY2018); authorizes $10 million

discretionary each year FY2014FY2018. [Sec. 10003]

150

Adopts funding in House bill. [Sec.

10003]

150

National Clean Plant Network. $5

million in each of FY2009-2012, to

remain available until expended.

[Sec. 10202]

Consolidates National Clean

Plant Network with Plant Pest

and Disease Management.

Mandatory funding for

combined program of $60

million annually for FY20142017, and $65 million for

FY2018 and thereafter. (Plant

Pest and Disease Management

had continuing $50 million

annual baseline.) [Sec. 10007]

Similar to the Senate bill, except

that the House bill provides

mandatory funding of $62.5 million

annually in FY2014-FY2017 and

$75 million in FY2018 and

thereafter. (Plant Pest and Disease

Management had continuing $50

million annual baseline.) [Sec.

10011]

Adopts funding in House bill. [Sec.

10007]

National Organic Certification

Cost-Share Program. $22 million

in FY2008, to remain available until

expended. [Sec. 10301]

Provides 50% of $23 million in

mandatory funding annually

(FY2014-2018) for the national

organic certification cost-share

program. [Sec. 11034]

57.5 Repeals national organic

certification cost share program

[Sec. 10004(d)]. Continues existing

organic certification cost share in

selected states at 10% of $10

million annually in Agr. Mgt.

Assistance. [Sec. 2506]

Provides $11.5 million in

mandatory funding annually

(FY2014-FY2018) for the national

organic certification cost-share

program. [Sec. 10004(c)]

57.5

Organic Production and Market

Data Initiatives. $5 million in

FY2008, to remain available until

expended. [Sec. 10302]

Reauthorizes $5 million in

mandatory funding; extends

discretionary authority of $5

million through FY2018. [Sec.

10005(a)]

No mandatory funding.

Reauthorizes discretionary

appropriations. [Sec. 10004(a)]

Similar to the Senate bill. [Sec.

10004(a)]

Market Loss Assistance for

Asparagus. $15 mill. [Sec. 10404]

No comparable provision.

Livestock

CRS-8

2008 farm bill

P.L. 110-246

National Sheep Industry

Improvement Center. $1 million in

FY2008, to remain available until

expended. [Sec. 11009]

2013 farm bill proposals

$ million

(5 yrs.)

Senate-passed S. 954

Establishes a competitive grants

program for similar purposes

with $1.5 million of mandatory

funding in FY2014, to remain

available until expended. [Sec.

12104]

9,000

Reauthorizes 4 supplemental

disaster programs for FY20122018, with future baseline.

$ million

(5 yrs.)

House-passed H.R. 2642 and

H.R. 3102

1.5 No comparable provision.

Enacted 2014 farm bill

$ million

(5 yrs.)

Agricultural Act of 2014

(P.L. 113-79)

Adopts the Senate bill. [Sec. 12102]

$ million

(5 yrs.)

1.5

Agricultural Disaster Assistance

Supplemental agricultural disaster

assistance; authorized for FY2008FY2011.

2,382

Similar to Senate bill, but

comparatively with more

provisions closer to 2008 farm bill.

3,674

Identical to the House bill. [Sec.

1501]

a) SURE (Supplemental Revenue

Assistance).

a) SURE: Not reauthorized.

b) LIP (Livestock Indemnity

Program).

b) LIP: Reauthorized.

c) LFP (Livestock Forage Disaster

Program).

c) LFP: Reauthorized.

d) ELAP (Emergency Assistance for

Livestock, Honeybees, and FarmRaised Catfish).

d) ELAP: Reauthorized.

e) TAP (Tree Assistance Program).

e) TAP: Reauthorized.

[Sec. 12033 and Sec. 15101]

[Sec. 1501]

Provides $10 million annually in

mandatory funding for FY2014FY2018; authorizes

discretionary appropriations.

[Sec. 12001]

Same as Senate bill. [Sec. 12201]

3,674

Miscellaneous

Outreach and Technical Assistance

for Socially Disadvantaged Farmers

or Ranchers. $15 million in

FY2009; $20 million each year for

FY2010-2012. [Sec. 14004]

CRS-9

2008 farm bill

P.L. 110-246

2013 farm bill proposals

$ million

(5 yrs.)

Senate-passed S. 954

House-passed H.R. 2642 and

H.R. 3102

No comparable provision.

$ million

(5 yrs.)

Agricultural Act of 2014

(P.L. 113-79)

No comparable provision.

$ million

(5 yrs.)

Determination on Merits of

Pigford Claims. $100 million in

FY2008. [Sec. 14012]

100

Total number of provisions

13,955

>4,531

>4,887

>6,229

Total ($ million)

No comparable provision.

$ million

(5 yrs.)

Enacted 2014 farm bill

Source: CRS, using Table A-1 of this report as the universe of affected programs, and corresponding entries in CRS Report R43076.

CRS-10

Programs Without a Budget Baseline at the End of the 2008 Farm Bill

Appendix A. Identification of Programs in the 2008

Farm Bill Without Budget Baseline After FY2012

The programs without baseline in the 2008 farm bill can be grouped in several ways: by title of

the farm bill, by the degree of uncertainty in the cost, and by the duration of the use of mandatory

funding. Additional details about the provision of mandatory funding for each program are

provided in Table A-1.

Programs Grouped by Title of the 2008 Farm Bill

Programs without baseline beyond FY2012 are spread among 12 of the 2008 farm bill’s 15 titles

(Table A-1). The title with the most such provisions is the energy title (8), followed by

conservation (5), nutrition (5), and horticulture and organic agriculture (5).

The ranking among the titles is much different based on the dollar amounts that might be needed

to continue the provisions in the next farm bill. The title with the largest cost to extend programs

without baseline is agricultural disaster assistance ($4.8 billion to $9 billion, depending on the

estimation approach), followed by conservation ($2.1 billion to $2.7 billion), energy ($1.1 billion

to $1.2 billion), and research ($383 million).

Programs Grouped by Degree of Cost Uncertainty

Farm bill funding typically is specified as either (1) a fixed dollar amount or (2) “such sums as

necessary” to operate a program under specified provisions (the “type” column in Table A-1).

For the fixed dollar amount programs (type = “fixed”), the five-year cost to continue a provision

is assumed to equal the five-year sum of the funding specified in the 2008 farm bill. Given the

likelihood of a “baseline farm bill”—that is, a farm bill without additional funding to increase

spending—or a farm bill facing deficit reduction, many people believe that it is unlikely that any

or many of these programs could see an increase above what they received in the 2008 farm bill.

Fixed-dollar funding was specified for 33 of the 37 provisions in the 2008 farm that do not have

baselines beyond 2012. The total five-year amount for these 33 programs was about $2.4 billion,

which is about one-fourth of the total of the provisions without baseline (Table A-1).10

For the “such sums as necessary” programs (type = “estimated”), CBO estimates how much the

provision is expected to cost. The estimated five-year cost to extend a provision was computed

under two different approaches:

•

the CBO cost estimates at the time of enactment of the 2008 farm bill, and

•

the most recent CBO baseline projection based on more recent estimates.

Other approaches are possible, such as, for example, assuming that programs continue at the level of their last year of

authorization (an approach sometimes used for programs with continuing baseline). Some fixed-cost programs receive

increasing amounts over time, with the largest amount in FY2012 (examples are apparent in the “comments” column of

Table A-1). If the last year of the authorization (FY2012) were used as the cost to continue the programs, the cost to

extend the 33 fixed-cost provisions would be about $500 million higher than the $2.4 billion estimate.

Congressional Research Service

Programs Without a Budget Baseline at the End of the 2008 Farm Bill

As with the fixed-dollar amounts, these are unofficial estimates in the absence of projections by

CBO that would be based on actual proposed legislation. Presenting estimates from both

approaches helps provide a range of costs and indicates where uncertainty is more apparent.11

Only 4 of the 37 provisions without baseline have “such sums as necessary” funding. They

account for the difference in the costs between the two approaches (the two cost columns).

Although fewer in number than the fixed-amount group, they account for $6.7 billion to $11.5

billion (depending on the approach), which is about 80% of the total for provisions without

baseline (Table A-1).

In the 2008 farm bill, Congress indicated its relative priorities for programs by the tradeoff or

allocation of budgetary resources among programs. If a proposal was deemed too expensive

during legislative development, its parameters may have been tightened to reduce costs. After

enactment, some “such sums as necessary” programs may become more expensive than first

estimated. If selected for continuation, would the program continue at its current higher cost, or

be redesigned in the next farm bill to cost less? Thus, which of the two approaches is better

depends on whether one believes Congress would change program parameters, for example, to

reduce a program that has become more expensive than initially expected, or whether Congress

would continue current program provisions and pay a higher cost than in 2008.

Programs Grouped by Duration of Use of Mandatory Funding

In terms of the length of time that mandatory funding is used, 20 provisions in the 2008 farm bill

provided mandatory funding only in the early years of the 2008 farm bill (FY2008-FY2011).

These are estimated to cost $6 billion to $10 billion if they are extended in the next farm bill

(depending on the approach to estimate costs). Seventeen other provisions provided mandatory

funding for the entire duration of the farm bill. These are estimated to cost $3.2 billion to $3.8

billion if they are extended for five years (the “term” column in Table A-1).

This distinction may be important for some observers because programs without full-term

funding may not be prioritized as highly as programs receiving full-term funding. Some of the

provisions were given short-term funding to help begin implementation or to fund a backlog of

unfunded obligations. Other programs received a short-term infusion of mandatory funding and

may be authorized to receive discretionary appropriations. These programs may have authority to

operate for the full term of the 2008 farm bill, regardless of the duration of mandatory funding.

The provisions listed with full-term funding do not have baseline either because their cost is

relatively small (less than the $50 million scoring threshold in FY2012) or because the budget

scoring at the time the 2008 farm bill was enacted did not assign a cost or give the program a

baseline for the second five years of the scoring window (to make the bill less expensive, as

discussed above in footnote 7).

Some of these programs are pilot programs or are new programs without a large or established

constituency (e.g., local and regional foreign food aid procurement, or the national clean plant

network). Six of them are bioenergy programs, and five affect specialty crops or beginning and

Other approaches also are possible (see footnote 10). Assumptions within these approaches also may lead to different

results, such as the length of time that agricultural disaster assistance might be extended, or implementation and

regulatory decisions for the biomass crop assistance program (BCAP), as discussed in notes to Table A-1.

Congressional Research Service

Programs Without a Budget Baseline at the End of the 2008 Farm Bill

minority farmers. Others are relatively established programs, such as the wetlands reserve and

grasslands reserve programs in conservation.

In summary, 37 programs received mandatory funding in the 2008 farm bill, but do not have any

baseline for a new farm bill because their funding stopped before FY2012, their amounts are

below scoring thresholds, or they were intentionally unfunded for future years. An estimated $9

billion to $14 billion would be needed to continue these programs for five more years.12 Congress

needed to find offsets from other sources to continue them, a difficult task in a tight budget

environment.

Separately, Craig Jagger, Economist for the House Agriculture Committee, estimated in 2010 that about $9 billion

would be the cost to continue these programs. See “Budget Implications for the Next Farm Bill,” at Farm Foundation

Forum, September 14, 2010, slide 45, at http://www.farmfoundation.org/news/articlefiles/363-Jagger_Budget_Color_

Farm%20Found_09-14-10.pdf.

Congressional Research Service

Table A-1. Identification of Programs in the 2008 Farm Bill Without Budget Baseline After FY2012

(provisions in the Food, Conservation, and Energy Act of 2008 that receive mandatory budget authority, but are not assumed to continue in the budget

baseline beyond FY2012)

Estimated cost to extend ($ million, 5 yrs.)a

Comments

Termb

Typec

CBO score at

2008 passaged

CBO baseline

in March 2012d

Implementation (of farm

commodity programs in Title I)

$50 million in FY2009 to the Farm Service Agency to

help implement the farm bill. Such expenses usually

are discretionary.

Short

Fixed

Sec. 2202

Wetlands Reserve Program

3.04 million acres to be enrolled through FY2012.

The 2008 farm bill added $128 million-$338 million

of costs to baseline annually.

Full

Est.

1,460

2,100e

Sec. 2403

Grassland Reserve Program

1.22 million additional acres to be enrolled during

FY2009-2012. The farm bill added $63 million-$80

million of costs to baseline annually.

Full

Est.

320

300e

Sec. 2606

Voluntary Public Access and

Habitat Incentive Program

$50 million for the period FY2009-2012, made

available in FY2009.

Short

Fixed

Sec. 2803

Small Watershed Rehabilitation

Program

$100 million in FY2009, to remain available until

expended. Discretionary appropriations also are

authorized.

Short

Fixed

100

Sec. 2807

Desert Terminal Lakes

$175 million in FY2008, to remain available until

expended (transfer from USDA to Dept. of Interior).

Short

Fixed

175

Sec. 3106

McGovern-Dole International

Food for Education and Child

Nutrition Program

$84 million in FY2009, to remain available until

expended. It also receives annual discretionary

appropriations (e.g., $184 million in FY2012).

Short

Fixed

Sec. 3206

Local and Regional Food Aid

Procurement Projects

$5 million in FY2009, $25 million in FY2010 and

FY2011, and $5 million in FY2012. Results of pilot

program to be evaluated.

Full

Fixed

Section

Name of Provision

Farm Commodity Programs

Sec. 1622

Conservation

Trade

CRS-14

Estimated cost to extend ($ million, 5 yrs.)a

Name of Provision

Comments

Termb

Typec

CBO score at

2008 passaged

CBO baseline

in March 2012d

Sec. 4141

Pilot projects to evaluate health

and nutrition promotion in SNAP

$20 million of mandatory funds in FY2009, to remain

available until expended. Discretionary

appropriations also are authorized.

Short

Fixed

Sec. 4142

Study on Comparable Access to

Supplemental Nutrition

Assistance for Puerto Rico

$1 million of mandatory funds in FY2009, to remain

available until expended.

Short

Fixed

Sec. 4305

Whole Grain Products (for

school lunches and breakfasts)

$4 million of Section 32 funds to be made available in

FY2009 (CBO estimate).

Short

Fixed

Sec. 4307

Survey of Foods Purchased by

School Food Authorities

$3 million in FY2009.

Short

Fixed

Sec. 4402

Healthy Urban Food Enterprise

Development Center

$1 million in each of FY2009-2011. Discretionary

appropriations are authorized at $2 million for

FY2012.

Short

Fixed

Section

Nutrition

Rural Development

Sec. 6022

Rural Microentrepreneur

Assistance Program

$4 million in each of FY2009-2011 and $3 million in

FY2012.

Full

Fixed

Sec. 6029

Funding of Pending Rural

Development Loan and Grant

Applications

$120 million in FY2008, to remain available until

expended, to reduce a backlog of approved

applications. Discretionary appropriations usually

fund these programs.

Short

Fixed

120

Sec. 6202

Value-Added Agricultural Market

Development Program Grants

$15 million in FY2009, to remain available until

expended. It also receives annual discretionary

appropriations.

Short

Fixed

Sec. 7206

Organic Agriculture Research and

Extension Initiative

$18 million in FY2009, and $20 million in each of

FY2010-2012.

Full

Fixed

Sec. 7311

Specialty Crop Research Initiative

$30 million in FY2008, and $50 million in each of

FY2009-2012.

Full

Fixed

230

Research

CRS-15

Estimated cost to extend ($ million, 5 yrs.)a

Section

Sec. 7410

Name of Provision

Comments

Termb

Typec

CBO score at

2008 passaged

CBO baseline

in March 2012d

Beginning Farmer and Rancher

Development

$18 million in FY2009, and $19 million in each of

FY2010-2012.

Full

Fixed

Healthy Forests Reserve Program

$9.75 million each year for FY2009-2012, to remain

available until expended.

Full

Fixed

Sec. 9002

Biobased Markets Program

$1 million in FY2008, and $2 million each year for

FY2009-2012.

Full

Fixed

Sec. 9003

Biorefinery Assistance

$75 million in FY2009, and $245 million in FY2010.

Discretionary appropriations also are authorized.

Short

Fixed

320

Sec. 9004

Repowering Assistance

$35 million in FY2009, to remain available until

expended. Discretionary appropriations also are

authorized.

Short

Fixed

Sec. 9005

Bioenergy Program for Advanced

Biofuels

$55 million in each of FY2009-FY2010, $85 million in

FY2011, and $105 million in FY2012, to remain

available until expended.

Full

Fixed

300

Sec. 9006

Biodiesel Fuel Education Program

$1 million in each of FY2008-2012.

Full

Fixed

Sec. 9007

Rural Energy For America

Program (REAP)

$55 million in FY2009, $60 million in FY2010, and

$70 million in each of FY2011-2012, to remain

available until expended.

Full

Fixed

255

Sec. 9008

Biomass Research and

Development

$20 million in FY2009, $28 million FY2010, $30

million in FY2011, and $40 million in FY2012, to

remain avail. until expended.

Full

Fixed

118

Sec. 9011

Biomass Crop Assistance

Program

Indefinite appropriation of mandatory funds (such

sums as necessary) for FY2008-2012.

Full

Est.

120f

$3 million in FY2008, $5 million in each of FY2009FY2010, and $10 million in each of FY2011-FY2012.

Full

Fixed

Forestry

Sec. 8205

Energy

Horticulture and Organic Agriculture

Sec. 10106

CRS-16

Farmers’ Market Promotion

Program

Estimated cost to extend ($ million, 5 yrs.)a

Section

Name of Provision

Comments

Termb

Typec

CBO score at

2008 passaged

CBO baseline

in March 2012d

Sec. 10202

National Clean Plant Network

$5 million in each of FY2009-2012, to remain

available until expended.

Full

Fixed

Sec. 10301

National Organic Certification

Cost-Share

$22 million in FY2008, to remain available until

expended.

Short

Fixed

Sec. 10302

Organic Production and Market

Data Initiatives

$5 million in FY2008, to remain avail. until expended.

Discretionary also is authorized.

Short

Fixed

Sec. 10404

Market Loss Assistance for

Asparagus Producers

$15 million in FY2008 for market loss payments for

the 2004-2007 crop years.

Short

Fixed

National Sheep Industry

Improvement Center

$1 million in FY2008, to remain available until

expended.

Short

Fixed

Supplemental agricultural disaster

assistance, including establishing

the Agricultural Disaster Relief

Trust Fund

Authorized for FY2008-FY2011. CBO estimated in

2008 that the cost would be $4.846 billion over 4

years ending in FY2011. The March 2012 baseline

projects $5.9 billion of outlays for the 4-year life of

the provision. Reuters reported in 2011 a CBO

score of $9 billion for a 5-year extension.g

Short

Est.

4,846

9,000g

Sec. 14004

Outreach and Technical

Assistance for Socially

Disadvantaged Farmers or

Ranchers

$15 million in FY2009, and $20 million each year for

FY2010-2012.

Full

Fixed

Sec. 14012

Determination on Merits of

Pigford Claims

$100 million in FY2008, to remain available until

expended.

Short

Fixed

100

9,131

13,955

Livestock

Sec. 11009

Agricultural Disaster Assistance

Sec. 12033

and Sec.

15101

Miscellaneous

Total: 37 provisions in 2008 farm bill without baseline beyond FY2012a

CRS-17

Estimated cost to extend ($ million, 5 yrs.)a

Section

Name of Provision

Comments

Termb

Typec

CBO score at

2008 passaged

CBO baseline

in March 2012d

Subtotals by term (or duration) of mandatory funding

20 provisions with short-term use of mandatory funds in the 2008 farm bill

Short

5,969

10,123

17 provisions with full-term use of mandatory funds in the 2008 farm bill

Full

3,162

3,832

Subtotals by type of certainty about costs

33 provisions where cost is fixed or known in the farm bill

Fixed

2,435

4 provisions where cost is estimated based on implementation

Est.

6,696

11,520

Source: Compiled by CRS using P.L. 110-246; the CBO score of the 2008 farm bill (at enactment against the March 2008 baseline, May 12, 2008, unpublished); the

March 2012 CBO baseline (http://cbo.gov/publication/43053); and Reuters, “High price tag to revive U.S. farm disaster programs,” May 11, 2011, at http://www.reuters.

com/article/2011/05/12/us-agriculture-disasters-aid-idUSTRE74B01N20110512.

Unofficial estimates in the absence of projections by CBO that would be based on proposed legislation.

Provisions were identified as having either short-term or full-term mandatory funding. Provisions selected as short-term have mandatory budget authority at some

time in the early years of the 2008 farm bill, but no new mandatory budget authority in the last year (FY2012). Provisions selected as full-term have mandatory

budget authority at least during the last year of the farm bill, but no baseline beyond FY2012. Provisions with full-term funding may not have an extended baseline

either because (1) the funding during the last year of a farm bill is below a minimum $50 million scoring threshold that is needed to continue a baseline, or (2) the

Budget and Agriculture Committees did not give the program a baseline in the years beyond the farm bill in order to reduce the program’s 10-year cost at the time

the farm bill was written.

The cost of provisions is identified as either fixed or estimated. For fixed-cost programs, the cost is specified by statute and equals the five-year funding provided in

2008 farm bill. For programs with estimated costs, the cost to extend the provision depends on assumptions relevant for the heading of each column.

If a fixed amount was specified in the 2008 farm bill, then that amount is used in both cost columns.

Costs for WRP and GRP are CBO’s actual amounts from FY2008 to FY2011 and the projection for FY2012.

Because USDA’s implementation rules for the biomass crop assistance program changed in 2010, this estimate is CBO’s projected cost in FY2012 ($24 million)

multiplied by five years. This estimate may be low, however, because BCAP might have operated at a higher level if appropriations acts had not placed limits on

BCAP in recent years.

This cost estimate was cited in the press as a CBO score in May 2011 (Reuters, “High price tag to revive U.S. farm disaster programs,” at http://www.reuters.com/

article/2011/05/12/us-agriculture-disasters-aid-idUSTRE74B01N20110512). At an average of $1.8 billion per year, the five-year $9 billion estimate is higher than the

historical $5.9 billion four-year cost of the supplemental agricultural disaster program (an average of $1.5 billion per year). This estimate is sensitive to assumptions

about interactions with crop insurance and other agricultural support programs.

CRS-18

Programs Without a Budget Baseline at the End of the 2008 Farm Bill

Appendix B. Status of Programs Without Baseline in

the 2012 Farm Bill Extension and Proposals

The one-year extension of the 2008 farm bill in the American Taxpayer Relief Act of 2012 (P.L.

112-240) did not provide any additional mandatory funding for any of the 37 programs without

baseline.

In lieu of mandatory funding, the farm bill extension made numerous “authorizations of

appropriation” to allow discretionary funding for FY2013, but this did not provide funding.

Discretionary funding conceivably could have been provided by the Appropriations Committees

in a supplemental appropriation, an omnibus appropriation, or the full-year FY2013 appropriation

(P.L. 113-6). But in the deficit reduction and sequestration budget environment, no discretionary

appropriations were provided to any of these programs.

The gap in mandatory funding during FY2013 for many of these programs was not necessarily

intended. The House and Senate Agriculture Committees envisioned providing funding for many

of these programs in the five-year farm bills that were developed in 2012 (H.R. 6083 and S.

3240). The Senate 2012 farm bill, S. 3240, would have provided more than $3.021 billion of

mandatory funding over five years for 26 of the programs, and the House farm bill, H.R. 6083,

would have provided more than $2.025 billion of mandatory funding for 14 of the programs

(Table B-1).

Even an Agriculture Committee-developed farm bill extension would have funded some of these

programs in FY2013.13 But the enacted extension did not provide any additional mandatory

funding for any of these programs.

Under a House Agriculture Committee extension proposal, 21 of the non-disaster programs without baseline would

have received $473 million of mandatory funding in FY2013, and agricultural disaster programs (counted as one

program for consistency with other tables in this report) would have received $848 million in FY2013. This additional

spending would have been offset by a $1.3 billion reduction in “direct payments” in the farm commodity program. See

the CBO score of an extension proposal by House Agriculture Committee Chairman Lucas, December 30, 2012, at

http://www.cbo.gov/sites/default/files/cbofiles/attachments/43828-OneYearAgProgramExtension.pdf.

Congressional Research Service

Table B-1. Status in the Extension of the 2008 Farm Bill, and Farm Bill Proposals in 2012, of the 37 Programs in the 2008

Farm Bill Without Baseline

(Program provisions and mandatory budget authority)

2008 farm bill

P.L. 110-246

2012 farm bill proposals (112th Congress)

$ million

(5 yrs.)

Senate-passed farm bill,

S. 3240

$ million

(5 yrs.)

House-reported farm bill,

H.R. 6083

Extension of 2008 farm bill

$ million

(5 yrs.)

American Taxpayer Relief

Act, P.L. 112-240

$ million

FY2013

Farm Commodity Programs

Implementation of farm

commodity programs. $50

million in FY2009. [Sec. 1622]

Provides $100 million of mandatory

funds from the CCC to implement

Title I. [Sec. 1614]

100

Identical to the Senate bill.

[Sec. 1612]

Wetlands Reserve Program.

3.04 million acres to be enrolled

through FY2012. Added $128

million-$338 million of costs to

baseline annually through 2012.

[Sec. 2202]

2,100

Establishes the Agricultural

Conservation Easement Program

(ACEP). Combines the purposes of

WRP, FPP, and GRP. Repeals WRP

with transition provisions. [Sec.

2703, Sec. 2301(a)]

Unspecified part

of ACEP

Minor differences compared with

Senate bill. Does not allow the

use of prior year CCC funding

for contracts entered into before

October 1, 2012. [Sec. 2703, Sec.

2301(a)]

Grassland Reserve Program.

1.22 million additional acres to

be enrolled during FY20092012. Added $63 million-$80

million of costs to baseline

annually through 2012. [Sec.

2403]

300

Establishes the Agricultural

Conservation Easement Program

(ACEP). Incorporates GRP

easements rental agreements. [Sec.

2301(a), Sec. 2001(a-b)]

Unspecified part

of ACEP

Voluntary Public Access and

Habitat Incentive. $50 million

for the period FY2009-2012,

[Sec. 2606]

Authorizes $40 million of

mandatory funding for the period of

FY2013-FY2017. [Sec. 2503]

100

No provision.

Unspecified part

of ACEP

No provision; extended under

general provision. Limited

funding may remain as a result

of limitations placed by

appropriators in FY2011 and

FY2012.

Nearly identical to the Senate bill

with minor differences. [Sec.

2001(a-b)]

Unspecified part

of ACEP

No provision; extended under

general provision. Limited

funding may remain as a result

of limitations placed by

appropriators in FY2012.

Authorizes $30 million of

mandatory funding for the period

of FY2013-FY2017. [Sec. 2503]

No mandatory funding.

Authorizes appropriations of

$10 million for FY2013. [Sec.

701(c)]

Conservation

CRS-20

2008 farm bill

P.L. 110-246

2012 farm bill proposals (112th Congress)

$ million

(5 yrs.)

Senate-passed farm bill,

S. 3240

$ million

(5 yrs.)

House-reported farm bill,

H.R. 6083

Small Watershed Rehabilitation

Program. $100 million in

FY2009, to remain available until

expended. Discretionary

appropriations also are

authorized. [Sec. 2803]

100

Does not authorize additional

mandatory funding. Extends

authorization of appropriations for

discretionary funding through

FY2017. [Sec. 2505]

Desert Terminal Lakes. $175

million in FY2008, to remain

available (transfer from USDA

to Dept. of Interior. [Sec. 2807]

175

Includes the transfer of $150 million

of CCC funds to the Bureau of

Reclamation, among other program

changes. [Sec. 2506]

150

No comparable provision.

McGovern-Dole International

Food for Education and Child

Nutrition Program. $84 million

in FY2009, to remain available

until expended. [Sec. 3106]

Does not authorize additional

mandatory funding. Extends

authorization of appropriations for

discretionary funding through

FY2017. [Sec. 3204]

Local and Regional Food Aid

Procurement Projects. $5

million in FY2009, $25 million in

FY2010 and FY2011, and $5

million in FY2012. [Sec. 3206]

No additional mandatory funding.

Establishes a procurement program

with authorized appropriations of

$40 million for each of FY2013

through FY2017. [Sec. 3207]

Provides $100 million in mandatory

funding over 5 years for incentive

grants for projects that incentivize

SNAP participants to buy fruits and

vegetables. [Sec. 4205]

Authorizes $250 million in

mandatory funding for FY2013 to

remain available until expended.

Extends discretionary

authorization through FY2017.

[Sec. 2505]

Extension of 2008 farm bill

$ million

(5 yrs.)

250

American Taxpayer Relief

Act, P.L. 112-240

$ million

FY2013

No provision. Prior funding

remains available until

expended, but spending is

prohibited under the

continuing resolution.

No provision.

Same as the Senate bill. [Sec.

3204]

Not extended. [Sec. 701(i)(3)]

No comparable provision.

Not extended. [Sec. 701(i)(3)]

100

No comparable provision.

No provision.

Trade

Nutrition

Pilot projects to evaluate health

and nutrition promotion in

SNAP. $20 million of mandatory

funds in FY2009, to remain

available. [Sec. 4141]

CRS-21

2008 farm bill

P.L. 110-246

2012 farm bill proposals (112th Congress)

$ million

(5 yrs.)

Senate-passed farm bill,

S. 3240

Extension of 2008 farm bill

$ million

(5 yrs.)

House-reported farm bill,

H.R. 6083

$ million

(5 yrs.)

American Taxpayer Relief

Act, P.L. 112-240

$ million

FY2013

32.5

No provision.

Study on Comparable Access to

Supplemental Nutrition

Assistance for Puerto Rico. $1

million of mandatory funds in

FY2009, to remain available until

expended. [Sec. 4142]

No comparable provision.

For Commonwealth of the

Northern Mariana Islands,

provides $1 million in FY2013

and FY2014 to study capacity to

administer SNAP. Support: $13.5

million in FY2015, $8.5 million in

each of FY2016 and FY2017.

Whole Grain Products (for

school lunches and breakfasts).

$4 million of Section 32 funds in

FY2009. [Sec. 4305]

Mandatory funding for the pilot and

evaluation; provides $10 million

available over 2 years (FY2013 and

FY2014.) [Sec. 4204]

No comparable provision.

No provision.

Survey of Foods Purchased by

School Food Authorities. $3

million in FY2009. [Sec. 4307]

No comparable provision.

Not extended. [Sec. 701(i)(4)]

Assistance For Community

Food Projects. $1 million in

FY2009-2011. [Sec. 4402]

No comparable provision.

No provision.

Rural Microentrepreneur

Assistance Program. $4 million

in each of FY2009-2011 and $3

million in FY2012. [Sec. 6022]

Provides $3.75 million annually in

mandatory spending for FY2014FY2017. Reauthorizes discretionary

funding. [Sec. 6001]

No mandatory funding.

Reauthorizes discretionary

funding at $20 million annually

for FY2013-FY2017.

Not extended. [Sec. 701(i)(5)]

Funds Pending Loan and Grant

Applications. $120 million in

FY2008, to reduce a backlog of

applications. [Sec. 6029]

120

Provides for one-time mandatory

funding of $50 million for pending

rural development loan and grant

applications. [Sec. 6203]

No comparable provision.

Not extended. [Sec. 701(i)(5)]

Value-Added Agricultural

Market Development Program

Grants. $15 million in FY2009,

to remain available until

expended. [Sec. 6202]

Authorizes $12.5 million annually in

mandatory spending for FY2014FY2017. Reauthorizes discretionary

funding at $40 million annually for

FY2013-FY2017. [Sec. 6001]

No mandatory funding provided.

Reauthorizes discretionary

funding of $50 million each fiscal

year FY2013-2017. [Sec. 6203]

Not extended. [Sec. 701(i)(5)]

Rural Development

CRS-22

2008 farm bill

P.L. 110-246

2012 farm bill proposals (112th Congress)

$ million

(5 yrs.)

Senate-passed farm bill,

S. 3240

Extension of 2008 farm bill

$ million

(5 yrs.)

House-reported farm bill,

H.R. 6083

$ million

(5 yrs.)

American Taxpayer Relief

Act, P.L. 112-240

$ million

FY2013

Research

Organic Agriculture Research

and Extension Initiative. $18

million in FY2009, and $20

million in each of FY2010-2012.

[Sec. 7206]

Provides CCC funds of $16 million

for each year FY2013-FY2017, and

extends authority for appropriated

funding of $25 million through

FY2017. [Sec. 7208]

Identical funding as in the Senate

bill. [Sec. 7211]

No mandatory funding.

Authorizes appropriations of

$25 million for FY2013. [Sec.

701(e)(1)]

Specialty Crop Research

Initiative. $30 million in FY2008,

and $50 million in each of

FY2009-2012. [Sec. 7311]

230

Mandatory funds: $25 million

(FY2013); $30 million (FY20142015); $65 million (FY2016); $50

million thereafter). [Sec. 7305]

200

Identical funding as in the Senate

bill. [Sec. 7306]

200

No mandatory funding.

Authorizes appropriations of

$100 million for FY2013. [Sec.

701(e)(2)]

Beginning Farmer and Rancher

Development. $18 million in

FY2009, and $19 million in each

of FY2010-2012. [Sec. 7410]

Provides mandatory funding of $17

million per year for FY2013-FY2017

(to be available until expended).

[Sec. 7408]

Mandatory annual funding at $10

million per year for FY2013FY2017 (to be available until

expended). [Sec. 7410]

No mandatory funding.

Authorizes appropriations of

$30 million for FY2013. [Sec.

701(e)(3)]

No mandatory funding. Provides

authorization to receive

discretionary appropriations. [Sec.

8205]

Same as the Senate bill. [Sec.

8203]

No provision.

Biobased Markets Program. $1

million in FY2008, and $2 million

each year for FY2009-2012.

[Sec. 9002]

Authorizes mandatory funding of $3

million annually for FY2013-FY2017.

[Sec. 9002]

No mandatory funding is

authorized. Authorizes to be

appropriated $2 million annually

for FY2013-FY2017. [Sec. 9002]

No mandatory funding.

Extends authorization of

appropriation of $2 million for

FY2013. [Sec. 701(f)(1)]

Biorefinery Assistance. $75

million in FY2009, and $245

million in FY2010. [Sec. 9003]

320

Authorized mandatory funding of

$100 million for FY2013 and $58

million each for FY2014-FY2015.

[Sec. 9003]

216

No mandatory funding is

authorized. Authorizes to be

appropriated $75 million annually

for FY2013-FY2017. [Sec. 9003]

No mandatory funding.

Extends authorization of

appropriation of $150 million

for FY2013. [Sec. 701(f)(2)]

Forestry

Healthy Forests Reserve

Program. $9.75 million each

year FY2009-2012, available

until expended. [Sec. 8205]

Energy

CRS-23

2008 farm bill

P.L. 110-246

2012 farm bill proposals (112th Congress)

$ million

(5 yrs.)

Senate-passed farm bill,

S. 3240

Extension of 2008 farm bill

$ million

(5 yrs.)

House-reported farm bill,

H.R. 6083

$ million

(5 yrs.)

American Taxpayer Relief

Act, P.L. 112-240

$ million

FY2013

Repowering Assistance. $35

million in FY2009, to remain

available until expended. [Sec.

9004]

Repealed; transfers remaining funds

(approximately $25 million to

remain available until expended) to

the Rural Energy for America

Program (REAP). [Sec. 9004]

Identical to the Senate bill. [Sec.

9004]

No mandatory funding.

Extends authorization of

appropriation of $15 million

for FY2013. [Sec. 701(f)(3)]

Bioenergy Program for

Advanced Biofuels. $55 million

in FY2009-2010, $85 million in

FY2011, and $105 million in

FY2012. [Sec. 9005]

300

No mandatory funding is

authorized. Authorizes to be

appropriated $20 million annually

for FY2013-FY2017. [Sec. 9005]

No mandatory funding is

authorized. Authorizes to be

appropriated $50 million annually

for FY2013-FY2017. [Sec. 9005]

No mandatory funding.

Extends authorization of

appropriation of $25 million

for FY2013. [Sec. 701(f)(4)]

Biodiesel Fuel Education

Program. $1 million in each of

FY2008-2012. [Sec. 9006]

Authorizes mandatory funding of $1

million annually for FY2013-FY2017.

[Sec. 9006]

No mandatory funding is

authorized. Authorizes to be

appropriated $2 million annually

for FY2013-FY2017. [Sec. 9006]

No mandatory funding.

Authorizes appropriations of

$1 million for FY2013. [Sec.

701(f)(5)]

Rural Energy For America

Program (REAP). $55 million in

FY2009, $60 million in FY2010,

and $70 million in each of

FY2011-2012. [Sec. 9007]

255

Authorizes mandatory funding of

$48.2 million annually for FY2013FY2017. Authorizes to be

appropriated $20 million annually

for FY2013-FY2017. [Sec. 9007]

241

No mandatory funding is

authorized. Authorizes to be

appropriated $45 million annually

for FY2013-FY2017. [Sec. 9007]

No mandatory funding.

Extends authorization of

appropriation of $25 million

for FY2013. [Sec. 701(f)(6)]

Biomass Research and

Development. $20 million in

FY2009, $28 million in FY2010,

$30 million in FY2011, and $40

million in FY2012. [Sec. 9008]

118

Authorizes mandatory funding of

$26 million annually for FY2013FY2017. Authorizes to be

appropriated $30 million annually

for FY2013-FY2017. [Sec. 9008]

130

No mandatory funding is

authorized. Authorizes to be

appropriated $20 million annually

for FY2013-FY2017. [Sec. 9008]

No mandatory funding.

Extends authorization of

appropriation of $35 million

for FY2013. [Sec. 701(f)(7)]

Biomass Crop Assistance

Program. An indefinite

appropriation (such sums as

necessary) of mandatory funds

for FY2008-2012. [Sec. 9011]

120

Authorizes mandatory funding of

$38.6 million annually for FY2013FY2017. [Sec. 9010]

193

No mandatory funding is

authorized. Authorizes to be

appropriated $75 million annually

for FY2013-FY2017. [Sec. 9010]

No mandatory funding.

Authorizes appropriations of

$20 million for FY2013. [Sec.

701(f)(10)]

Horticulture and Organic Agriculture

CRS-24

2008 farm bill

P.L. 110-246

2012 farm bill proposals (112th Congress)

$ million

(5 yrs.)

Senate-passed farm bill,

S. 3240

Extension of 2008 farm bill

$ million

(5 yrs.)

House-reported farm bill,

H.R. 6083

$ million

(5 yrs.)

American Taxpayer Relief

Act, P.L. 112-240

$ million

FY2013

Farmers’ Market Promotion

Program. $3 million in FY2008,

$5 million in each of FY20092010, and $10 million in each of

FY2011-2012. [Sec. 10106]

Increases mandatory funding to $20

million annually (FY2013 through

FY2017), and separately authorizes

$20 million discretionary each year

FY2013-FY2017, subject to

appropriations. [Sec. 10003]

100

Increases mandatory funding to

$20 million annually (FY2013

through FY2017), and separately

authorizes $10 million

discretionary each year FY2013FY201. [Sec. 10003]

100

No mandatory funding.

Authorizes appropriations of

$10 million for FY2013. [Sec.

701(g)(1)]

National Clean Plant Network.

$5 million in each of FY20092012, to remain available until

expended. [Sec. 10202]

Consolidates Plant Pest and Disease

Management and the National

Clean Plant Network. Mandatory

funding for combined program of

$60 million annually for FY20132016, and $65 million for FY2017

and thereafter. (Plant Pest and

Disease Management had continuing

$50 million annual baseline.) [Sec.

10007]

Similar to the Senate bill, except

that the House bill provides

mandatory funding of $71.5

million in FY2013 and each fiscal

year thereafter. [Sec. 10012]

107.5

No mandatory funding.

Authorizes appropriations of

$5 million for FY2013. [Sec.

701(g)(2)]

National Organic Certification

Cost-Share Program. $22

million in FY2008, to remain

available until expended. [Sec.

10301]

From Agricultural Management

Assistance, provides 50% of $23

million in mandatory CCC funding

annually (FY2013-2017) for organic

certification cost-share program.

[Sec. 11027]

57.5

Repealed. [Sec. 10004(d)]

No mandatory funding.

Authorizes appropriations of

$22 million for FY2013. [Sec.

701(g)(3)]

Organic Production and Market

Data Initiatives. $5 million in

FY2008, to remain available until

expended. [Sec. 10302]

Reauthorizes $5 million in

mandatory funding; extends

discretionary authority of $5 million

through FY2017. [Sec. 10005]

Identical to the Senate bill. [Sec.

10004]

No mandatory funding.

Authorizes appropriations of

$5 million for FY2013. [Sec.

701(g)(4)]

Market Loss Assistance for

Asparagus. $15 million for 20042007 crops. [Sec. 10404]

No comparable provision.

Not extended. [Sec. 701(i)(6)]

Livestock

CRS-25

2008 farm bill

P.L. 110-246

2012 farm bill proposals (112th Congress)

$ million

(5 yrs.)

National Sheep Industry

Improvement Center. $1 million

in FY2008, to remain available

until expended. [Sec. 11009]

Senate-passed farm bill,

S. 3240

$ million

(5 yrs.)

House-reported farm bill,

H.R. 6083

Extension of 2008 farm bill

$ million

(5 yrs.)

American Taxpayer Relief

Act, P.L. 112-240

$ million

FY2013

Not extended. [Sec. 701(i)(5)]

Establishes a competitive grants

program for similar purposes with

$1.5 million of mandatory funding in

FY2013, to remain available until

expended. [Sec. 12104]

1.5

9,000

SURE is not reauthorized. Other

four programs are reauthorized

(LIP, LFP, ELAP, TAP) with

mandatory funding from CCC for

FY2012 through FY2017. Maximum

funding for ELAP is $5 million

annually. [Sec. 1501]

1,097

Same as Senate bill, except

maximum funding for ELAP is

$20 million annually. [Sec. 1501]

1,020

No mandatory funding.

Authorizes appropriations of

$80 million for LIP, $400

million for LFP, $50 million

for ELAP, and $20 million for

TAP for each of FY2012 and

FY2013. [Sec. 702]

Outreach and Technical

Assistance for Socially

Disadvantaged Farmers or

Ranchers. $15 million in

FY2009; $20 million each year

for FY2010-2012. [Sec. 14004]

Provides $5 million annually in

mandatory funding, and authorizes

$20 million annually, subject to

annual appropriations for FY2013FY2017. [Sec. 12001]

Provides $10 million annually in

mandatory funding, and

authorizes $20 million annually,

subject to annual appropriations

for FY2013-FY2017. [Sec. 12201]

No mandatory funding.

Authorizes appropriations of

$20 million for FY2013. [Sec.

701(h)]

Determination on Merits of

Pigford Claims. $100 million in

FY2008, available until

expended. [Sec. 14012]

100

No comparable provision.

Not extended. [Sec. 701(i)(8)]

Total number of provisions

13,955

> 3,021

> 2,025

No comparable provision.

Agricultural Disaster Assistance

Supplemental agricultural

disaster assistance, including

establishing the Agricultural

Disaster Relief Trust Fund.

SURE, LIP, LFP, ELAP, TAP.

Authorized for FY2008-FY2011.

[Sec. 12033 and Sec. 15101]

Miscellaneous

Total ($ million)

Source: CRS, using Table A-1 of this report as the universe of affected programs, and corresponding entries for S. 3240 and H.R. 6083 in CRS Report R42552, The

2012 Farm Bill: A Comparison of Senate-Passed S. 3240 and the House Agriculture Committee’s H.R. 6083 with Current Law, and P.L. 112-240.

CRS-26

Programs Without a Budget Baseline at the End of the 2008 Farm Bill

Author Contact Information

(name redacted)

Specialist in Agricultural Policy

[redacted]@crs.loc.gov, 7-....

Acknowledgments

Craig Jagger provided valuable expertise on the subject and helpful peer review of an earlier

version of this report.

Congressional Research Service

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