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

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URL: https://www.frixlaw.com/law-library/documents/crs%3AR41433

## Record

- **Collection:** Congressional research report
- **Document type:** CRS Report
- **Published:** April 11, 2014
- **Citation:** R41433

## Text

Programs Without a Budget Baseline at the
End of the 2008 Farm Bill
name redacted
Specialist in Agricultural Policy
April 11, 2014

Congressional Research Service
7-....
www.crs.gov
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.
1
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.
2
See CRS Report 98-560, Baselines and Scorekeeping in the Federal Budget Process.
3
See CRS Report R41157, The Statutory Pay-As-You-Go Act of 2010: Summary and Legislative History.
4
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.”
5
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.”
6
See CRS Report R42484, Budget Issues That Shaped the 2014 Farm Bill.

Congressional Research Service

1

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).
7

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).
8
A definitive total is not possible because some programs are combined and necessary budget details are unknown.
9
See CRS Report R42484, Budget Issues That Shaped the 2014 Farm Bill.

Congressional Research Service

2

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]

50

Provides $97 million of
mandatory funds to implement
Title I. [Sec. 1614]

97

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]

50

Authorizes $40 million of
mandatory funding for FY2014FY2018. [Sec. 2503]

40

Authorizes $30 million of
mandatory funding for the period
of FY2014-FY2018. [Sec. 2503]

30

Similar to the Senate bill. [Sec.
2503]

40

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]

0

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]

84

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]

60

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.

0

Nearly identical to the Senate bill.
[Sec. 2507]

150

0

Same as the Senate bill. [Sec. 3204]

0

Identical to the Senate and House
bills. [Sec. 3204]

0

No mandatory funding.
Establishes a procurement
program with authorized
appropriations of $60 million
for each of FY2014 through
FY2018. [Sec. 3207]

0

No comparable provision.

0

Similar to the Senate bill, but
authorizes appropriations of $80
million for each fiscal year FY2014FY2018. [Sec. 3207]

0

20

Provides $100 million in
mandatory funding over 5 years
for grants that incentivize fruits
and vegetables in SNAP. [Sec.
4204]

100

No comparable provision.

0

Similar to the Senate bill, but names
it “Food Insecurity Nutrition
Initiative." Provides $100 million in
mandatory funding over 5 years.
[Sec. 4208]

100

1

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

0

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]

4

Authorizes appropriations for a
pilot project to purchase pulse
crops, analogous to the wholegrain pilot [Sec. 4206].

0

No comparable provision.

0

Identical to the Senate bill. [Sec.
4213]

0

Survey of Foods Purchased by
School Authorities. $3 million in
FY2009. [Sec. 4307]

3

No comparable provision.

0

No comparable provision.

0

No comparable provision.

0

Healthy Urban Food Enterprise
Development Center. $1 million in
FY2009-2011. [Sec. 4402]

3

No comparable provision.

0

No comparable provision.

0

No comparable provision.

0

Rural Microentrepreneur
Assistance Program. $4 million in
each of FY2009-2011 and $3
million in FY2012. [Sec. 6022]

15

Provides $3 million annually in
mandatory spending for
FY2014-FY2018. Reauthorizes
discretionary funding. [Sec.
6001]

15

No mandatory funding.
Reauthorizes discretionary funding
at $20 million annually for FY2014FY2018. [Sec. 6018]

0

Adopts the Senate provision for $3
million of mandatory funding for 5
years, and authorizes
appropriations of $40 million per
year. [Sec. 6023]

15

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.

0

Adopts Senate provision. [Sec.
6210]

150

Value-Added Agricultural Market
Development Program Grants.
$15 million in FY2009, to remain
available until expended. [Sec.
6202]

15

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]

50

Provides $63 million mandatory
funding to remain available until
expended. Reauthorizes
discretionary funding. [Sec. 6203]

63

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]

78

Provides CCC funds of $16
million for each year FY2014FY2018; extends authority for
appropriations through FY2018.
[Sec. 7209]

80

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]

75

Provides mandatory funding of
$17 million per year for
FY2014-FY2018 (to be available
until expended). [Sec. 7408]

85

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

39

No mandatory funding.
Provides authorization to
receive discretionary
appropriations. [Sec. 8205]

0

Same as the Senate bill. [Sec. 8203]

0

Similar to the Senate bill. [Sec.
8203]

0

Biobased Markets Program. $1
million in FY2008, and $2 million
each year for FY2009-2012. [Sec.
9002]

9

Authorizes mandatory funding
of $3 million annually for
FY2014-FY2018. [Sec. 9002]

15

No mandatory funding is
authorized. Authorizes to be
appropriated $2 million annually
for FY2014-FY2018. [Sec. 9002]

0

Similar to the Senate bill. [Sec.
9002]

15

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]

0

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]

35

No comparable provision.

0

No mandatory funding. Authorize
to be appropriated $10 million
annually FY2014-FY2018. [Sec.
9004]

0

Similar to the House bill, except
provides $12 million of mandatory
funding in FY2014, available until
expended. [Sec. 9004]

12

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]

0

No mandatory funding. Authorizes
to be appropriated $50 million
annually FY2014-FY2018. [Sec.
9005]

0

Provides $15 million each fiscal
year FY2014-FY2018, to remain
available until expended. [Sec.
9005]

75

Biodiesel Fuel Education Program.
$1 million in each of FY2008-2012.
[Sec. 9006]

5

Authorizes mandatory funding
of $1 million annually for
FY2014-FY2018. [Sec. 9005]

5

No mandatory funding is
authorized. Authorizes to be
appropriated $2 million annually
for FY2014-FY2018. [Sec. 9006]

0

Identical to the Senate bill. [Sec.
9006]

5

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]

0

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]

0

Authorizes mandatory funding of
$3 million annually for FY2014FY2017. Authorizes to be
appropriated $20 million annually
for FY2014-FY2018. [Sec. 9008]

12

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]

0

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]

33

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]

20

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]

55

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]

75

Adopts funding in House bill. [Sec.
10007]

75

National Organic Certification
Cost-Share Program. $22 million
in FY2008, to remain available until
expended. [Sec. 10301]

22

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]

0

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]

5

Reauthorizes $5 million in
mandatory funding; extends
discretionary authority of $5
million through FY2018. [Sec.
10005(a)]

5

No mandatory funding.
Reauthorizes discretionary
appropriations. [Sec. 10004(a)]

0

Similar to the Senate bill. [Sec.
10004(a)]

5

Market Loss Assistance for
Asparagus. $15 mill. [Sec. 10404]

15

No comparable provision.

0

No comparable provision.

0

No comparable provision.

0

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

1

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.)
0

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).

0

a) SURE: Not reauthorized.

0

a) SURE: Not reauthorized.

0

a) SURE: Not reauthorized.

b) LIP (Livestock Indemnity
Program).

0

b) LIP: Reauthorized.

0

b) LIP: Reauthorized.

0

b) LIP: Reauthorized.

c) LFP (Livestock Forage Disaster
Program).

0

c) LFP: Reauthorized.

0

c) LFP: Reauthorized.

0

c) LFP: Reauthorized.

d) ELAP (Emergency Assistance for
Livestock, Honeybees, and FarmRaised Catfish).

0

d) ELAP: Reauthorized.

0

d) ELAP: Reauthorized.

0

d) ELAP: Reauthorized.

e) TAP (Tree Assistance Program).

0

e) TAP: Reauthorized.

0

e) TAP: Reauthorized.

0

e) TAP: Reauthorized.

[Sec. 12033 and Sec. 15101]

0

[Sec. 1501]

0

[Sec. 1501]

0

[Sec. 1501]

75

Provides $10 million annually in
mandatory funding for FY2014FY2018; authorizes
discretionary appropriations.
[Sec. 12001]

50

Same as Senate bill. [Sec. 12201]

50

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

50

2008 farm bill
P.L. 110-246

2013 farm bill proposals
$ million
(5 yrs.)

Senate-passed S. 954

0

House-passed H.R. 2642 and
H.R. 3102
No comparable provision.

$ million
(5 yrs.)
0

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

37

25

14

29

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

0

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.

10
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.

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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
11
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.

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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.

12

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

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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

50

50

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

50

50

Sec. 2803

Small Watershed Rehabilitation
Program

$100 million in FY2009, to remain available until
expended. Discretionary appropriations also are
authorized.

Short

Fixed

100

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

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

84

84

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

60

60

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

20

20

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

1

1

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

4

4

Sec. 4307

Survey of Foods Purchased by
School Food Authorities

$3 million in FY2009.

Short

Fixed

3

3

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

3

3

Section
Nutrition

Rural Development
Sec. 6022

Rural Microentrepreneur
Assistance Program

$4 million in each of FY2009-2011 and $3 million in
FY2012.

Full

Fixed

15

15

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

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

15

15

Sec. 7206

Organic Agriculture Research and
Extension Initiative

$18 million in FY2009, and $20 million in each of
FY2010-2012.

Full

Fixed

78

78

Sec. 7311

Specialty Crop Research Initiative

$30 million in FY2008, and $50 million in each of
FY2009-2012.

Full

Fixed

230

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

75

75

Healthy Forests Reserve Program

$9.75 million each year for FY2009-2012, to remain
available until expended.

Full

Fixed

39

39

Sec. 9002

Biobased Markets Program

$1 million in FY2008, and $2 million each year for
FY2009-2012.

Full

Fixed

9

9

Sec. 9003

Biorefinery Assistance

$75 million in FY2009, and $245 million in FY2010.
Discretionary appropriations also are authorized.

Short

Fixed

320

320

Sec. 9004

Repowering Assistance

$35 million in FY2009, to remain available until
expended. Discretionary appropriations also are
authorized.

Short

Fixed

35

35

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

300

Sec. 9006

Biodiesel Fuel Education Program

$1 million in each of FY2008-2012.

Full

Fixed

5

5

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

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

118

Sec. 9011

Biomass Crop Assistance
Program

Indefinite appropriation of mandatory funds (such
sums as necessary) for FY2008-2012.

Full

Est.

70

120f

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

Full

Fixed

33

33

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

20

20

Sec. 10301

National Organic Certification
Cost-Share

$22 million in FY2008, to remain available until
expended.

Short

Fixed

22

22

Sec. 10302

Organic Production and Market
Data Initiatives

$5 million in FY2008, to remain avail. until expended.
Discretionary also is authorized.

Short

Fixed

5

5

Sec. 10404

Market Loss Assistance for
Asparagus Producers

$15 million in FY2008 for market loss payments for
the 2004-2007 crop years.

Short

Fixed

15

15

National Sheep Industry
Improvement Center

$1 million in FY2008, to remain available until
expended.

Short

Fixed

1

1

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

75

75

Sec. 14012

Determination on Merits of
Pigford Claims

$100 million in FY2008, to remain available until
expended.

Short

Fixed

100

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

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.
a.

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

b.

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.

c.

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.

d.

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

e.

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

f.

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.

g.

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.

13

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.

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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]

50

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]

50

Authorizes $40 million of
mandatory funding for the period of
FY2013-FY2017. [Sec. 2503]

40

100

No provision.

0

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.

0

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.

0

Authorizes $30 million of
mandatory funding for the period
of FY2013-FY2017. [Sec. 2503]

30

No mandatory funding.
Authorizes appropriations of
$10 million for FY2013. [Sec.
701(c)]

0

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]

0

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]

84

Does not authorize additional
mandatory funding. Extends
authorization of appropriations for
discretionary funding through
FY2017. [Sec. 3204]

0

Local and Regional Food Aid
Procurement Projects. $5
million in FY2009, $25 million in
FY2010 and FY2011, and $5
million in FY2012. [Sec. 3206]

60

No additional mandatory funding.
Establishes a procurement program
with authorized appropriations of
$40 million for each of FY2013
through FY2017. [Sec. 3207]

20

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.

0

0

No provision.

0

Same as the Senate bill. [Sec.
3204]

0

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

0

0

No comparable provision.

0

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

0

100

No comparable provision.

0

No provision.

0

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.

0

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]

1

No comparable provision.

0

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]

4

Mandatory funding for the pilot and
evaluation; provides $10 million
available over 2 years (FY2013 and
FY2014.) [Sec. 4204]

10

No comparable provision.

0

No provision.

0

Survey of Foods Purchased by
School Food Authorities. $3
million in FY2009. [Sec. 4307]

3

No comparable provision.

0

No comparable provision.

0

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

0

Assistance For Community
Food Projects. $1 million in
FY2009-2011. [Sec. 4402]

3

No comparable provision.

0

No comparable provision.

0

No provision.

0

Rural Microentrepreneur
Assistance Program. $4 million
in each of FY2009-2011 and $3
million in FY2012. [Sec. 6022]

15

Provides $3.75 million annually in
mandatory spending for FY2014FY2017. Reauthorizes discretionary
funding. [Sec. 6001]

15

No mandatory funding.
Reauthorizes discretionary
funding at $20 million annually
for FY2013-FY2017.

0

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

0

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]

50

No comparable provision.

0

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

0

Value-Added Agricultural
Market Development Program
Grants. $15 million in FY2009,
to remain available until
expended. [Sec. 6202]

15

Authorizes $12.5 million annually in
mandatory spending for FY2014FY2017. Reauthorizes discretionary
funding at $40 million annually for
FY2013-FY2017. [Sec. 6001]

50

No mandatory funding provided.
Reauthorizes discretionary
funding of $50 million each fiscal
year FY2013-2017. [Sec. 6203]

0

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

0

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]

78

Provides CCC funds of $16 million
for each year FY2013-FY2017, and
extends authority for appropriated
funding of $25 million through
FY2017. [Sec. 7208]

80

Identical funding as in the Senate
bill. [Sec. 7211]

80

No mandatory funding.
Authorizes appropriations of
$25 million for FY2013. [Sec.
701(e)(1)]

0

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)]

0

Beginning Farmer and Rancher
Development. $18 million in
FY2009, and $19 million in each
of FY2010-2012. [Sec. 7410]

75

Provides mandatory funding of $17
million per year for FY2013-FY2017
(to be available until expended).
[Sec. 7408]

85

Mandatory annual funding at $10
million per year for FY2013FY2017 (to be available until
expended). [Sec. 7410]

50

No mandatory funding.
Authorizes appropriations of
$30 million for FY2013. [Sec.
701(e)(3)]

0

39

No mandatory funding. Provides
authorization to receive
discretionary appropriations. [Sec.
8205]

0

Same as the Senate bill. [Sec.
8203]

0

No provision.

0

Biobased Markets Program. $1
million in FY2008, and $2 million
each year for FY2009-2012.
[Sec. 9002]

9

Authorizes mandatory funding of $3
million annually for FY2013-FY2017.
[Sec. 9002]

15

No mandatory funding is
authorized. Authorizes to be
appropriated $2 million annually
for FY2013-FY2017. [Sec. 9002]

0

No mandatory funding.
Extends authorization of
appropriation of $2 million for
FY2013. [Sec. 701(f)(1)]

0

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]

0

No mandatory funding.
Extends authorization of
appropriation of $150 million
for FY2013. [Sec. 701(f)(2)]

0

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]

35

Repealed; transfers remaining funds
(approximately $25 million to
remain available until expended) to
the Rural Energy for America
Program (REAP). [Sec. 9004]

0

Identical to the Senate bill. [Sec.
9004]

0

No mandatory funding.
Extends authorization of
appropriation of $15 million
for FY2013. [Sec. 701(f)(3)]

0

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]

0

No mandatory funding is
authorized. Authorizes to be
appropriated $50 million annually
for FY2013-FY2017. [Sec. 9005]

0

No mandatory funding.
Extends authorization of
appropriation of $25 million
for FY2013. [Sec. 701(f)(4)]

0

Biodiesel Fuel Education
Program. $1 million in each of
FY2008-2012. [Sec. 9006]

5

Authorizes mandatory funding of $1
million annually for FY2013-FY2017.
[Sec. 9006]

5

No mandatory funding is
authorized. Authorizes to be
appropriated $2 million annually
for FY2013-FY2017. [Sec. 9006]

0

No mandatory funding.
Authorizes appropriations of
$1 million for FY2013. [Sec.
701(f)(5)]

0

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]

0

No mandatory funding.
Extends authorization of
appropriation of $25 million
for FY2013. [Sec. 701(f)(6)]

0

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]

0

No mandatory funding.
Extends authorization of
appropriation of $35 million
for FY2013. [Sec. 701(f)(7)]

0

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]

0

No mandatory funding.
Authorizes appropriations of
$20 million for FY2013. [Sec.
701(f)(10)]

0

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]

33

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)]

0

National Clean Plant Network.
$5 million in each of FY20092012, to remain available until
expended. [Sec. 10202]

20

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]

55

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)]

0

National Organic Certification
Cost-Share Program. $22
million in FY2008, to remain
available until expended. [Sec.
10301]

22

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)]

0

No mandatory funding.
Authorizes appropriations of
$22 million for FY2013. [Sec.
701(g)(3)]

0

Organic Production and Market
Data Initiatives. $5 million in
FY2008, to remain available until
expended. [Sec. 10302]

5

Reauthorizes $5 million in
mandatory funding; extends
discretionary authority of $5 million
through FY2017. [Sec. 10005]

5

Identical to the Senate bill. [Sec.
10004]

5

No mandatory funding.
Authorizes appropriations of
$5 million for FY2013. [Sec.
701(g)(4)]

0

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

15

No comparable provision.

0

No comparable provision.

0

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

0

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

0

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

0

1

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]

0

Outreach and Technical
Assistance for Socially
Disadvantaged Farmers or
Ranchers. $15 million in
FY2009; $20 million each year
for FY2010-2012. [Sec. 14004]

75

Provides $5 million annually in
mandatory funding, and authorizes
$20 million annually, subject to
annual appropriations for FY2013FY2017. [Sec. 12001]

25

Provides $10 million annually in
mandatory funding, and
authorizes $20 million annually,
subject to annual appropriations
for FY2013-FY2017. [Sec. 12201]

50

No mandatory funding.
Authorizes appropriations of
$20 million for FY2013. [Sec.
701(h)]

0

Determination on Merits of
Pigford Claims. $100 million in
FY2008, available until
expended. [Sec. 14012]

100

No comparable provision.

0

No comparable provision.

0

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

0

Total number of provisions

37

26

14

0

13,955

> 3,021

> 2,025

0

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

27

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Source: Frix Law Library, https://www.frixlaw.com/law-library/documents/crs%3AR41433. Public record. Not legal advice.