H e l p i n g P e o p l e H e l p t h e L a n d

Productive Lands

Healthy Environment

Natural Resources Conservation Service

Strategic Plan 2005-2010
VISION

MISSION

MISSION GOALS

& OUTCOMES

Productive Lands—Healthy Environment

Helping People Help the Land

High Quality, Productive Soils

Soil Quality.

The quality of intensively used soils is maintained or enhanced

 to enable sustained production of a safe, healthy, and abundant 

 food supply.

Clean and Abundant Water

Water Quality.

 The quality of surface waters and groundwater is improved 

 and maintained to protect human health, support a healthy 

 environment, and encourage a productive landscape. 

Water Management. 

 Water is conserved and protected to ensure an abundant and 

 reliable supply for the Nation.

Healthy Plant and Animal Communities

 Grassland, Rangeland, and Forest Ecosystems. 

 Grassland, rangeland, and forest ecosystems are productive, 

 diverse, and resilient.

 Fish and Wildlife Habitat. 

 Working lands and waters provide habitat for diverse and 

 healthy wildlife, aquatic species, and plant communities.

Wetlands. 

 Wetlands provide quality habitat for migratory birds and 

 other wildlife, protect water quality, and reduce fl ood damages.

Clean Air

 Agriculture makes a positive contribution to local air quality and 

 the Nation’s eff orts to sequester carbon.

An Adequate Energy Supply

 Agricultural activities conserve energy and agricultural 

 lands are a source of environmentally sustainable biofuels

 and renewable energy.

Working Farm and Ranch Lands 

 Connected landscapes sustain a viable agriculture and 

 natural resource quality.
Cooperative Conservation.

We will seek and promote cooperative eff orts to achieve 

natural resource goals.

Watershed Approach. 

We will provide information and assistance to encourage and 

enable locally led, watershed-scale conservation eff orts. 

Market-based Approach. 

We will facilitate growth of market-based opportunities that 

encourage the private sector to invest in conservation on 

private lands.

OVERARCHING STRATEGIES
T

his document describes the long-term goals 

of the Natural Resources Conservation Service 

(NRCS), the objectives we will help people 

achieve in the next five years (2005-2010), and 

the strategies that we have adopted to ensure our efforts 

are effective. The document was developed as part of a 

strategic planning effort designed to assess long-term 

trends and ensure that Agency activities in the next five 

years will contribute to sustaining natural resources in the 

coming decades. 

NRCS has adopted six Mission Goals, each developed with 

input and advice from our partners and stakeholders. 

In developing these goals, we focused on the natural 

resources that form the foundation for healthy lands. 

Our Mission Goals are:

 1: High-quality, Productive Soils

 2: Clean and Abundant Water

 3: Healthy Plant and Animal Communities

 4: Clean Air

 5: An Adequate Energy Supply

 6: Working Farm and Ranch Lands 

Mission Goals articulate in broad terms the benefits 

that the Nation expects to derive from NRCS activities 

and programs. Taken together, the goals describe the 

landscape that Americans want. Mission Goals are not 

conditions to be achieved at a specific point in time. 

Rather, they define the essential natural resource 

setting needed to sustain a high standard of living 

for a dynamic society. 

About this Document
Mission Goals are characterized as Foundation Goals and Venture Goals. 

Foundation Goals address the land uses and resource concerns that 

have been the primary focus of our activities throughout the Agency’s 

existence and continue to be the foundation of a healthy landscape. 

Venture Goals address resource issues that are growing in importance as a 

result of current economic and demographic trends.

Measurable objectives are associated with each goal and outcome. These 

objectives describe how we plan to measure our efforts in the next five 

years. Objectives consist of a performance measure, a quantified target 

for an identified date, and a baseline against which progress can be monitored. Targets for some Venture Goal objectives are under development 

and will be added to the plan when analytical efforts, now underway, 

provide an adequate basis for documenting Agency performance. 

Targets shown in this plan are the aggregate of program-specific, long-range 

targets projected by program managers on the basis of current program 

authorities, funding levels, and workload. Appendix 1 shows the annual performance measures and programs that support each of the objectives in this plan. 

This Strategic Plan is a multi-year map that displays how we plan to 

accomplish each Mission Goal. It provides a mechanism to track our 

progress and make adjustments to our service delivery as we move 

through a step-by-step process from annual performance measures to 

Objectives, Outcomes, and Mission Goals. 

To achieve these Mission Goals efficiently and effectively, the Strategic Plan outlines 

three key overarching strategies that will be implemented for all Mission Goals. 

They are: 

Cooperative Conservation: Seeking and promoting cooperative efforts to achieve 

conservation goals.

Watershed Approach: Providing information and assistance to encourage and 

enable locally led, watershed scale conservation.

Market-based Approach: Facilitating the growth of market-based opportunities 

that encourage the private sector to invest in conservation on private lands.

•

•

•

Natural Resource Outcomes further define each Mission Goal, clarifying the 

Agency’s focus for that goal. 

We believe these strategies will better enable us to help the American 

public be good stewards of the land. Closely linked with one another, 

each strategy is a catalyst to the others, allowing us to explore new and 

creative ways to achieve our goals.

CO NTE NTS

2 /Vision

3 / Mission

4 / Customers

5 /Guiding Principles

5 / Service

6 / Partnership

6 / Technical Excellence

 7 / Business Lines

8 / Overarching Strategies

9 / Cooperative Conservation

10 / Watershed Approach

13 / Market-based Approach

18 / Mission Goals

21 / Foundation Goals

 22 / High Quality, Productive Soils

 23 / Soil Quality

 28 / Clean and Abundant Water

 30 / Water Quality

 31 / Water Management

 36 / Healthy Plant and Animal Communities

 37 / Grassland, Rangeland, and Forest Ecosystems 

 39 / Fish and Wildlife Habitat 

 40 / Wetlands

45 / Venture Goals

 46 / Clean Air

 48 /Air Quality

 52 /An Adequate Energy Supply

 54 /Energy Conservation

 54 /Renewable Energy and Biofuels

 58 / Working Farm and Ranch Lands

 61 / Connected Landscapes

67 / Management Initiatives

68 / Ensuring Civil Rights

 68 / Equal Employment Opportunity

 68 / Fair and Equitable Service Delivery

69 / Improving Internal Management

 70 / Human Capital 

 71 / Electronic Government

 72 / Financial Performance

 73 / Budget and Performance Integration

74 / Appendices

1 

Vision

Mission

Customers

Guiding Principles

Overarching Strategies
Vision: Productive Lands—Healthy Environment

2 VISION

P R O D U C T I V E L A N D S

NRCS District Conservationist discusses a 

conservation plan with a Virginia landowner.

NRCS District Conservationist discus ationist discus ationist discusses a

conservation plan with a V ation plan with a V ation plan with a Virginia lando ginia lando ginia landowner.

T

he foundation of this strategic plan is a vision of the 

landscape that Americans want—a landscape in which 

a productive agricultural sector and a high-quality 

environment are both achieved. 

Productive use of privately owned cropland, rangeland, 

pastureland, and forestland is essential to the Nation’s security 

and the health and well-being of its citizens. Those lands form 

the foundation of a substantial and vibrant agricultural economy 

that provides food, fi ber, forest products, and energy for the 

Nation. Those lands can also produce environmental benefi ts that 

people need—clean and abundant water, clean air, and healthy 

ecosystems. Two-thirds of the Nation is in agricultural and forest 

use and the management of these lands aff ects the quality of the 

environment for everyone. 

America’s farmers, ranchers, woodlot owners, and others involved 

in America’s working lands strive to produce the multiple benefi ts 

that the Nation wants from privately owned land. They do not 

work in isolation. The Nation’s growing population and economy 

are making the landscape a mosaic of agricultural and developed 

areas. In this dynamic landscape of changing land uses, 

conservation is everyone’s responsibility. 

Maintaining productive land in 

harmony with a quality environment 

is possible if all the people who live on 

the land see themselves as members of 

interdependent communities who have 

responsibilities to their neighbors and 

responsibilities for the condition of their 

community. Where natural resource use 

and management are compatible with 

the framework of the natural systems 

of the land, agricultural production can 

continue unhindered, watersheds can 

function, wildlife populations can fl ourish, 

communities can prosper, and new and 

old residents alike can enjoy a quality 

environment. 
H E A L T H Y E N V I R O N M E N T

Mission: Helping People Help the Land

The Natural Resources Conservation Service (NRCS), is a 

technical Agency of the United 

States Department of Agriculture 

(USDA). NRCS was established 

in 1935 as the Soil Conservation Service (SCS) to carry out a 

continuing program of soil and 

water conservation. The Secretary 

of Agriculture organized NRCS in 

1994 through authority provided 

in the Federal Crop Insurance 

Reform and the Department of 

Agriculture Reorganization Act 

of 1994. NRCS combines the 

authorities of the former SCS as 

well as additional programs that 

provide financial assistance for 

natural resource conservation. 

NRCS provides products and services that enable 

people to be good stewards of the Nation’s soil, 

water, and related natural resources on nonFederal lands. 

With our help, people are better able to conserve, 

maintain, or improve their natural resources. 

This good stewardship involves actions to:

Maintain the condition of the land through continued 

good management where adequate conservation is 

already in place. 

Prevent damage to the land where assessment of social, 

economic, and environmental trends indicates potential 

for environmental degradation. 

Enhance the land for further productivity and 

environmental health.

Restore the land to health where damage to natural 

resources has already occurred. 

NRCS’ role is to provide technical and 

financial assistance to help our customers 

care for the land. As a result of our assistance, 

land managers and communities take a 

comprehensive approach to the use and 

protection of soil, water, and related 

resources in rural, suburban, urban, and 

developing areas. 

The assistance we provide is based on an 

understanding that the land—the landscape as 

a whole—must be the focus of conservation. 

Using this comprehensive approach, the people 

we help are able to help the land function as a 

living, sustainable system that provides a high 

standard of living and quality of life today and 

for future generations. 

•

•

•

•

MISSION 3
P R O D U C T I V E L A N D S

We serve, either directly or indirectly, 

all people of the Nation. However, the 

people who make decisions about 

natural resource use and management 

on non-Federal lands are our primary customers. We 

provide the technical assistance and science-based 

information that these stewards want to make good 

decisions about their natural resources. 

Our primary customers: 

Farmers and ranchers, people who own, operate, 

or live on farms and ranches. 

Other members of the private sector who support 

production agriculture and natural resource 

conservation.

Governments and units of government with 

responsibility for natural resource use and 

management.

Non-profit organizations whose mission aligns 

with aspects of natural resource management. 

These major customer types ask for different 

products and services, delivered in different ways. 

Within each major customer category, there are 

customer segments with different needs. ••••

Customers

Most of the 12,000 NRCS 

employees work in nearly 2,900 

field offices across the Nation, 

providing services directly to our 

customers. Field office staff work 

side-by-side with employees of 

the local conservation district and 

State conservation agency. Field 

offices act as local clearinghouses 

for natural resource information, 

helping people gain access to 

knowledge and assistance available 

from many sources. Working 

one-on-one with landowners and 

other land managers, field office 

employees provide the technical 

expertise for conservation planning 

and design that enables land man-

agers to balance their economic 

goals with the needs of the natural 

environment, creating sustainable 

systems that not only produce 

abundant crops and livestock, but 

also a quality environment.

Field office employees are 

supported by NRCS employees 

in other offices that provide 

technical and administrative 

support, conduct natural resource 

inventories, and develop new 

conservation technologies. NRCS 

State offices manage Agency 

programs in each State and 

coordinate Agency activities with 

the natural resource programs 

and priorities of State agencies 

and other Federal agencies. 

A framework of headquarters, 

divisions, six national centers, 

and three national technology 

support centers ensures that the 

Agency maintains the ability to 

consistently provide high-quality, 

cutting-edge technology. 

4 CUSTOMERS
H E A L T H Y E N V I R O N M E N T

NRCS District Conservationist discusses wetlands conservation with landowners.

GUIDING PRINCIPLES 5

Service:

Our customers are entitled to the best service 

we can provide. We respect the dignity and 

worth of every person we work with, treat all 

individuals fairly and equitably, listen to their views, 

and respond with assistance tailored to their needs. 

We believe that private land users will make responsible resource management decisions when equipped 

with appropriate data, technical assistance, and 

incentives. Our appreciation of the needs of people is 

as important to successful conservation efforts as is 

our understanding of natural resources. We continually 

strive to anticipate the public need and improve our 

service, and we measure our efforts against the highest 

professional standards.

Guiding Principles

T

hree fundamental principles guide 

how NRCS conducts business 

today and will continue to conduct 

business in the future.
P R O D U C T I V E L A N D S

Partnership:

Conservation can be achieved only by 

the cooperative effort of agencies, 

organizations, and individuals across 

the Nation. We value our relationships with 

other Federal, State, local, and Tribal resource 

agencies and organizations that share 

common objectives, although our missions 

may differ. We recognize that our traditional 

partners—local conservation districts, 

State conservation agencies, and Resource 

Conservation and Development Councils 

(RC&D)—have been key to past successes 

and remain essential to future progress in 

conservation. We maintain a governmentto-government relationship with American 

Indian nations. We will bring in new partners 

to work toward common conservation goals. 

Local leadership and local action—neighbors 

working together—form the foundation for 

effective land stewardship. We foster the 

discussions needed to bring people 

together in a shared vision for their land 

and communities. 

Technical Excellence:

Effective stewardship depends on having 

science-based information and technology 

that are up-to-date, easily accessible, 

and designed to meet user needs. 

We satisfy a broad range of technology and 

information needs—from conservation “how-tos” for 

the homeowner to technical standards and tools for 

conservation professionals. We design conservation 

practices that help private landowners and managers 

achieve personal conservation and production 

goals and meet their community’s environmental 

expectations. NRCS technical standards for soil 

science and soil surveys, conservation engineering, 

and other specialties are recognized and shared 

world-wide. Our National Resources Inventory and 

Soil Survey databases help scientists and policy 

makers track natural resource conditions and trends, 

information that is essential to conservation policy 

and program development.

NRCS’ success depends upon the technical expertise 

of its employees and volunteers and upon their 

ability to work effectively with our diverse customer 

base. To ensure that all our employees acquire and 

maintain the skills to be successful, we provide 

appropriate training in management, technical, 

and other disciplines.

We provide our workforce the best work environment possible by creating a culture and climate 

that welcomes diversity, encourages innovation 

and self-development, and rewards creativity and 

achievement. We help our partners and volunteers 

develop and maintain the technical skills needed 

to provide high-quality service, and we ensure that 

private-sector technical service providers who help 

implement our programs work to the same standards 

as NRCS employees. 

6 GUIDING PRINCIPLES
H E A L T H Y E N V I R O N M E N T

Business Lines and Products and Services

Business Line

Conservation 

Planning and 

Technical

Consultation 

Conservation 

Implementation

Natural Resource 

Inventory and 

Assessment

Natural Resource 

Technology 

Transfer

Financial 

Assistance

Description

NRCS provides data, information, or technical expertise that helps people collect and analyze information 

to identify natural resource problems and opportunities, clarify their objectives, and formulate and 

evaluate alternatives.

Conservation Plans reflect a customer’s decisions about the management of natural resources for a specific area—which may be a farm or ranch operating unit, a group of units, a community, or a landscape 

feature such as a watershed. 

Technical Consultations and Planning Assistance provide professional advice that helps customers 

make decisions about natural resource management. 

NRCS helps customers install on their land conservation practices and systems that meet established 

technical standards and specifications.

Designs allow for the application of engineering and management practices (practice survey, practice 

design, field layout of conservation practices, and so forth). 

Follow-up ensures the treatment is working properly and identifies if additional treatment is needed. 

Checks and Reviews are formal program status reviews of land where program contracts are in effect or 

subject to conservation compliance.

NRCS assesses, acquires, develops, interprets, analyzes, and delivers natural resource data and information 

to enable knowledge-based natural resource planning and decision making at all landscape scales. 

Data Gathering Protocols ensure that reliable natural-resource data are acquired and delivered.

Databases and Delivery include the maintenance and delivery of geospatial datasets and information.

Assessments and Analyses include the modeling and interpretation of natural resource data to better 

inform decision makers and facilitate policy development. 

NRCS develops, documents, and distributes a wide array of technology pertaining to resource assessment, 

conservation planning, and conservation system installation and evaluation. 

Technology Tools include conservation standards, specifications, guides and references, and modeling systems. NRCS has automated much of this technology to facilitate sound conservation decisions by the public. 

Training and Certification include technical training to external customers and administration of certification standards and procedures.

Plant Materials and related technologies provide for better land treatment. 

NRCS provides financial assistance to encourage the adoption of land treatment practices that have been 

proven to provide significant benefits to the public. Financial assistance is awarded to participants who 

voluntarily enter into contracts, easements, and agreements to conserve natural resources. Financial 

assistance is provided through:

Cost-share/Incentives;

Easements;

Grants; and

Stewardship Payments.

•

•

•

•

•

•

•

•

•

•

•

•

•

•

•

In fulfilling its stated mission, NRCS provides technical and financial assistance to land owners and managers. This technical and financial assistance 

is delivered through five business lines. Business lines are groups of similar 

products and services that Agency employees deliver to external customers. 

There are 15 core products and services under the business lines.

GUIDING PRINCIPLES 7
P R O D U C T I V E L A N D S

NRCS activities are guided by broad, unifying strategies 

that are consistent with our guiding principles. For the 

period of this strategic plan, we have defined three 

general strategies. In the next 5 years, we will: 

Seek and promote cooperative efforts to achieve conservation 

goals.

Provide information and assistance to encourage and enable 

locally led, watershed-scale conservation. 

Facilitate the growth of market-based opportunities that 

encourage business and industry to invest in conservation on 

private lands.

The first two of these strategies are not new for the Agency. 

Our activities have always been cooperative efforts that involved 

many partners, and we have long emphasized the importance of 

managing natural resources in terms of the natural divisions and 

processes of the landscape. The emphasis on the market-based 

approach is new, although market principles have been utilized, 

to a limited degree, in financial assistance programs. 

The three strategies are inter-related and will be implemented as 

a seamless process. In the upcoming 5 years, we will: 

Pursue partnerships that encourage the private sector to invest 

in conservation; 

Strengthen our technical capacity to enable the private sector 

to invest in conservation on private lands; and 

Encourage market-based pilot projects that test new and 

innovative conservation technology within the private sector.

•

•

•

•

•

•

Overarching Strategies

8 OVERARCHING STRATEGIES
Cooperative Conservation

We believe that enduring 

conservation is achieved only 

by the cooperative efforts 

of individuals, agencies, 

and organizations across 

the Nation. For over 70 

years, NRCS has worked 

cooperatively with its 

partners to help people get 

conservation on the land. 

NRCS, conservation districts, 

State conservation agencies, 

and RC&D councils represent 

a unique Federal, State, and 

local partnership dedicated to 

natural resource conservation. 

The one-on-one assistance 

this partnership provides to 

farmers and ranchers forms 

a foundation for cooperative 

conservation. Known and 

trusted by landowners, 

managers, and officials at the 

local level, we are able to facilitate locally led conservation 

efforts that meet local goals 

and serve the broader national 

interest.

Today, there is growing 

appreciation for the 

effectiveness of cooperative 

approaches that conserve and 

protect natural resources. We 

will use our experience and 

network of partnerships to 

reach new partners and open 

channels of communication 

among stakeholders at all levels. 

Increasing our cooperative 

conservation efforts will 

require that we strengthen 

certain Agency business 

lines and human capital 

development efforts. We will:

Increase our investment in 

developing the resource 

information and analytical 

and planning tools that 

cooperating agencies and 

organizations, State and 

local governments, and 

Tribes can use to reach 

consensus on natural 

resource goals and take 

action to achieve their goals. 

Expand our efforts to 

broaden the conservation 

partnership and build new 

alliances. We will conduct a 

dialog with our conservation 

partners to develop 

strategies to make our joint 

actions more efficient.

Enable strong local conservation leadership, working 

with partners who have 

responsibility for State and 

•

•

•

Locally led, watershed-scale conservation is an overarching strategy of NRCS.
P R O D U C T I V E L A N D S

responsibilities to coordinate 

program development and 

delivery, and to accelerate 

cooperative conservation at 

the local level.

Pursue partnerships 

with varied interests, to 

strengthen and collaborate 

in research efforts and to 

encourage pilot efforts in 

areas of resource concern, 

new to NRCS such as air 

quality, invasive species, and 

energy conservation.

Watershed Approach

We believe that a locally led, 

watershed-based approach to 

resource management on private lands is key to conserving 

natural resources. This approach 

will benefit both inland and 

coastal communities.

Decisions about the use 

and management of natural 

resources are best made by 

focusing on the functioning of 

natural systems within a landscape. Watersheds provide the 

context within which we can 

meaningfully evaluate aquatic 

habitats and the movement 

of water, nutrients, sediment, 

and energy through the 

landscape. They are universal, 

well-defined areas that provide 

a common basis for discussion 

of water, related resources, and 

landscape processes.

•

By using a cooperative, 

scientifically-based watershed 

approach, we will help 

ensure the most productive 

use of financial investments 

that address water quality, 

water supply, flooding, and 

aquatic habitat conservation. 

Managing our programs 

at the watershed level will 

provide a way to integrate 

NRCS program activities with 

other Federal, Tribal, State, and 

local activities to achieve the 

greatest results. 

Protecting watershed 

health begins with a local 

commitment to joint 

action to prevent or solve a 

resource problem of major 

community importance. 

Where local communities have 

developed a vision for their 

local watershed and reached 

consensus on priorities for 

action, we can tailor assistance 

to meet those priority needs. 

In communities where a vision 

has not been developed, we 

will promote the concept of 

watershed planning. When 

helping local leaders assess 

conditions and evaluate 

options, NRCS provides 

information about how the 

local watershed affects, and 

is affected by, conditions and 

events in other parts of the 

larger watershed or river basin 

system of which it is a part. 

10 OVERARCHING STRATEGIES

local long-range planning, 

in Nation-to-Nation relationships with Tribes, and 

with local organizations 

that have a stake in natural 

resource conservation.

Improve the quality of 

cooperative conservation 

programs and initiatives by 

playing a more proactive 

role in providing technical 

advice in decision-making 

arenas at all levels. 

Commit the resources 

needed to enable staff 

to develop the necessary 

skills to serve as catalysts 

and coordinators at the 

local level. Cooperative 

conservation—building 

coalitions—requires a 

substantial investment 

of staff time to work 

with stakeholders to 

define conditions, foster 

communication among all 

parties, and inform people 

on the issues and options.

Improve skills required 

to facilitate cooperative 

conservation activities 

through hiring and 

employee development 

and reward employees 

for achievements in 

cooperative ventures.

Collaborate with Federal, 

Tribal, and State agencies as 

well as others with natural 

resource management 

•

•

•

•
H E A L T H Y E N V I R O N M E N T

We are committed to providing 

services on a watershed basis 

to enable people to assess their 

natural resource conditions, 

evaluate alternatives, 

implement solutions, and 

measure success. 

Providing assistance on a 

watershed basis requires that 

we enhance products in our 

inventory and assessment and 

technology transfer business 

lines, and that we strengthen 

our capability to provide 

watershed planning assistance 

and technical consultations 

with communities and 

groups. It does not require the 

development of new business 

lines or changes in our organizational structure. We will:

Invest in employee 

development, technology 

development, and data 

collection that will be 

needed to enable the 

watershed approach to 

succeed for both inland and 

coastal communities. 

Enhance Agency capability 

to provide data at a variety 

of watershed scales and 

to assist in analyzing data. 

Watershed-scale planning 

requires data and analytical 

tools to help assess 

•

•

conditions, analyze options, 

and develop consensus on 

solutions. 

Enable Agency staff to 

develop the necessary skills 

to serve as catalysts for 

watershed plans. Facilitating 

local efforts on a watershed 

basis requires a substantial 

investment of staff time in 

working with stakeholders, 

as well as a high degree of 

expertise in a wide range of 

technical disciplines. 

Utilize a progressive and 

iterative approach to 

watershed-scale planning. 

Planning assistance occurs 

•

•

The best natural resources decision-making focuses on the function of natural systems.

OVERARCHING STRATEGIES 11
P R O D U C T I V E L A N D S

Upland terraces control soil erosion in a small watershed project.

12 OVERARCHING STRATEGIES

along a continuum and can 

be provided at various levels 

of intensity, depending on 

the scope and complexity of 

the resource problems, the 

target audience, available 

technologies, and local 

interest and commitment.

Utilize rapid watershed 

assessments to evaluate 

natural resource conditions 

and tailor the delivery 

of NRCS services on a 

watershed basis. Technical 

•

and financial assistance 

may be available to assist 

local groups in rapid 

watershed assessment. 

Rapid watershed 

assessment will be used as 

a platform for conservation 

program delivery.

Utilize the multi-disciplinary 

expertise of NRCS employees and partners to expand 

the local delivery system 

and initiate cross-agency 

coordination for technology 

•

transfer, data access and 

development, and technology development.

Develop improved indices 

for watershed baseline 

conditions, and strengthen 

our ability to measure the 

effects of conservation treatment on watershed health. 

Collect data and document 

conservation practice and 

program results by watershed 

boundaries in addition to 

State and county boundaries.

•

•
H E A L T H Y E N V I R O N M E N T

Market-based Approach

We believe that the voluntary, 

incentive-based approach 

is the most effective 

method of achieving sound 

resource management and 

conservation on private lands. 

Americans value the 

environment. They want clean 

water, clean air, and healthy 

wildlife populations. And 

they are willing to invest in 

protecting the things they 

value. People in many kinds of 

private-sector organizations 

contribute money to improve 

local streams, preserve land, 

and protect wildlife. 

Lack of reliable information 

about the benefits produced 

by specific conservation 

actions hinders development 

of environmental markets. 

To ensure that government 

programs provide the 

best return on taxpayers 

investments in conservation, 

natural resources agencies are 

quantifying the environmental 

effects of conservation actions 

and comparing the benefits 

and costs of management 

options. Reliable information 

is not only improving the 

management of public 

programs but creating 

opportunities for markets 

to play a role in accelerating 

conservation on private land. 

Markets for some types 

of environmental credits 

already exist. Opportunities 

for farmers and ranchers to 

participate in environmental 

credit trading for reduction 

of total maximum daily loads 

(TMDL) pollutants and for 

carbon sequestration are 

expected to increase. In the 

future, businesses or private 

organizations may be able to 

buy credits for clean water, 

greenhouse gases, or wetlands 

as easily as investors buy corn 

or soybeans today. 

Conducting a water test in the Native Alaskan village of Nanwalek.

OVERARCHING STRATEGIES 13
14 OVERARCHING STRATEGIES

P R O D U C T I V E L A N D S

This type of approach 

leverages conservation 

payments from the private 

sector, replacing the need 

for public program dollars. 

We will promote the use of 

environmental credit trading 

and voluntary reporting 

registries.

Credit trading, however, is only 

one way we will introduce 

market principles into public 

investment in conservation. 

We will focus on developing 

and implementing innovative, 

market-based approaches 

within the context of existing 

programs and activities. 

We will:

Help provide the 

information necessary for 

markets to function by 

increasing our investment 

in the technology and 

research needed to evaluate 

and measure benefi ts 

and costs of conservation 

treatment. Consistent and 

reliable measurements 

of conservation benefi ts 

will encourage private 

investment. 

Establish the National 

Natural Resources 

Conservation Foundation to 

help support development 

of innovative technology 

that has not yet matured to 

•

•

the point that public funds 

should be invested.

Work with partners 

to identify and assess 

opportunities for private 

sector investment in 

community-based 

conservation. For example, 

a city could weigh the 

cost of treatment facilities 

against the cost of applying 

conservation on the land in 

the watershed, as did the 

New York City Watershed, 

and buy the least costly 

option.

Apply a market-based 

approach to participation 

in conservation programs, 

recognizing that the transfer 

of public funds to program 

participants can be treated 

as a market transaction—a 

willing buyer purchasing 

a defi ned product from a 

willing seller for a mutually 

satisfactory price. 

Ensure that a marketbased approach is used to 

determine the proper level 

of public investment in any 

conservation eff ort. 

Identify situations in 

which innovative thinking 

can create conservation 

projects that serve multiple 

purposes, with the benefi ts 

received by one party 

•

•

•

•

becoming the source of 

incentives for others to 

work on the cooperative 

undertaking. For example, 

farmers in the upper 

Mississippi can protect 

water quality by plugging 

tile drains over the winter to 

prevent the off -site delivery 

of nitrogen. Hunting groups 

could pay the cost of the 

temporary plugging in order 

to improve habitat for ducks 

and enhance their hunting 

experience.

Enable greater effi ciency in 

market-based conservation 

eff orts that have long been 

conducted by the private 

sector. 

Strengthen our internal 

capability to facilitate 

market-based conservation 

by:

Conducting outreach, 

 education, technology 

 transfer, and partnership- 

 building activities.

Conducting pilots to 

 stimulate interest in 

 market-based concepts. 

Documenting and 

disseminating case studies 

to the work-force and 

potential new partners.

Creating a handbook and 

 training materials on the 

 market-based approach.

•

•

•

•

•

•
The Malpai Borderlands Group’s GrassBank project is a locally-led, cooperative eff ort.

Mission Goals
Mission Goals
Introduction

Mission Goals and natural resource 

outcomes in this plan articulate 

in broad terms the benefi ts that 

the Nation expects to derive from 

our activities and programs. Taken together, 

our mission goals describe the landscape that 

Americans want. This is a landscape in which: 

Soils are protected against damage by erosion 

and other forms of degradation. 

Water is protected against contamination and 

is managed effi ciently to serve many uses. 

The air is clear and free of harmful substances. 

Agricultural crops and livestock are healthy and 

well managed. 

Natural plant communities are vigorous 

and varied and shelter healthy and complex 

communities of animals. 

•

•

•

•

•
P R O D U C T I V E L A N D S

Our Mission Goals are not time-bound; they are 

not conditions to be achieved at a specifi c point 

in time. Rather, they defi ne the essential natural 

resource setting needed to sustain a high standard 

of living for a dynamic society. Outcome statements 

expand on the concise Mission Goal title.

The objectives for each natural resource outcome 

described in this plan relate to separate resource 

conditions that authorizing legislation directs our 

programs to help people address. Objectives defi ne 

measurable targets against which our long-term 

eff ectiveness can be evaluated. 

Although identifying clearly diff erentiated 

objectives is essential to reaching agreement on 

the priorities of public programs, resources don’t 

exist independently in the landscape. Everything is 

connected to everything else. NRCS conservation 

planners help people assess all components 

of the landscape—soil, water, air, plants, and 

animals—and encourage them to develop a 

resource management system that will protect 

the resource base while meeting 

economic objectives. 

In this plan, Mission Goals are grouped as 

“Foundation Goals” and “Venture Goals”:

Foundation Goals include goals for the land uses 

and resource concerns that have always been the 

primary focus of our activities and continue to be 

the foundation of a healthy landscape. 

Venture Goals address resource issues that are 

growing in importance as a result of current 

economic and demographic trends. 

•

•

20 MISSION GOALS

Productive soils are a long-standing NRCS Mission Goal.
H E A L T H Y E N V I R O N M E N T

Foundation Goals

The three Mission Goals in this section address the 

natural resources that have been a major focus of 

NRCS work from the beginning: 

High-quality, Productive Soils; 

Clean and Abundant Water; and 

Healthy Plant and Animal Communities.

High-quality productive soils and abundant supplies of 

clean water are the essential building blocks for production 

agriculture and life. The native plant communities of 

grasslands, rangelands, and forests, as well as the varied 

wildlife communities that inhabit the Nation’s land and 

waters, are also national assets that must be sustained. 

The NRCS has decades of experience in helping farmers and 

ranchers apply conservation practices to prevent soil erosion 

and protect soil quality, improve their management of 

water resources, protect watersheds against fl ood damages, 

improve the condition of grazing land, and enhance wildlife 

habitat. We have assessed the condition of these resources 

over time, and can measure progress toward the outcomes 

for these goals. This plan identifi es long-term, measurable 

objectives for each outcome. 

Conservation applied to achieve these objectives will 

contribute to progress on Venture Goals as well. 

•

•

•

MISSION GOALS 21
Foundation Goals: 

High-quality, Productive Soils
A

H E A L T H Y E N V I R O N M E N T

healthy land begins with healthy soils. Soil 

quality describes the capacity of a soil to sustain 

plant and animal productivity, maintain or 

enhance water and air quality, and support human 

health and habitation. High-quality soils are the 

foundation of productive croplands, forest lands, and 

grasslands, and a vibrant and productive agriculture.

The dynamic nature of soil properties 

means that soil quality is aff ected by 

management. Controlling erosion, 

minimizing soil disturbance and 

compaction, and managing plants and 

soil organic matter are all essential to 

maximizing soil quality and function for 

agricultural and environmental benefi ts.

Outcome: The quality of 

intensively used soils is 

maintained or enhanced to 

enable sustained production of 

a safe, healthy and abundant 

food supply.

Objective: By 2010, farmers will 

manage 70 percent of cropland 

under systems that maintain 

or improve soil condition and 

increase soil carbon.

Baseline: In 2003, 60 percent of 

cropland was managed under 

systems that maintained or 

improved soil condition and 

increased soil carbon.

Soil Quality—People have diff erent ideas of what quality soil is. 

For example:

For production agriculture, it 

may mean highly productive 

land, sustaining or enhancing 

productivity, maximizing 

profi ts, or maintaining the soil 

resource for future generations; 

For consumers, it may mean 

plentiful, healthful, and 

inexpensive food for present 

and future generations; 

For naturalists, it may mean 

soil in harmony with the 

landscape and its surroundings; 

For environmentalists, it 

may mean soil functioning at 

its potential to maintain or 

enhance biodiversity, water 

quality, nutrient cycling, and 

biomass production.

•

•

•

•

Introduction

MISSION GOALS 23
P R O D U C T I V E L A N D S

underlying geology and 

water flow patterns. However, 

salinity problems also can 

arise from poor irrigation 

management or landscape 

alterations that affect natural 

vegetation or hydrology.

Key Tasks

For 70 years, NRCS has been 

assisting farmers, ranchers, 

and other land managers to 

understand their soils and 

apply soil conserving systems 

and practices. In the period 

covered by this strategic plan, 

our current conservation 

efforts will be continued, as 

will our partnerships with 

Federal and State agencies, 

Situation

Key indicators of the 

quality of cropland and 

pastureland soils are 

erosion rates and organic 

content of the soil. Many 

practices that reduce 

erosion also maintain 

or increase soil organic 

matter. Soil organic matter 

improves soil structure 

and overall capacity to 

hold water and nutrients. 

Increasing soil organic 

matter content also can 

reduce atmospheric carbon 

dioxide levels.

Grazing land soil quality 

is also affected by grazing 

management. Proper 

grazing management can 

minimize erosion potential 

and soil compaction, and 

promote healthy plant growth 

to foster soil organic matter 

accumulation. Diversified plant 

communities can provide 

good forage, extend grazing 

seasons, and offer resilience 

during dry periods and 

drought.

Protecting soil quality also 

includes management that 

addresses salinity, which 

impairs plant productivity 

and can render the land 

unsuitable for agriculture. 

Some soils are saline because 

of natural factors such as 

���

���

���

���

���

���

���

���

����������������������

������������������������������������������������

���������������������

���� ���� ���� ���� ����

����������������������������������������������������������������������

Tribes, and local governments 

and organizations. Strategic 

emphases will accelerate 

progress toward our goals. 

Current Conservation 

Management

NRCS works with producers to 

plan and apply conservation 

systems to protect and 

improve their soils. 

Conservation practices, such 

as residue management, cover 

crops, and crop rotations, as 

well as range, pasture, and 

forest land management, have 

helped reduce erosion and 

improved soil condition.

In addition, NRCS helps 

producers reduce the potential

 

24 MISSION GOALS
H E A L T H Y E N V I R O N M E N T

Strategic Emphases

To help producers increasingly 

manage for soil quality, 

NRCS will: 

1. Expand the focus of technical assistance and program 

activities to emphasize 

management for soil quality. 

Actions will include:

Providing technical 

information to carry 

out watershed-wide 

environmental education 

and awareness initiatives on 

the environmental benefits 

of enhanced soil quality and 

on practices that improve 

soil condition;

•

Revising technical guidance 

and training Agency and 

partners’ employees;

Emphasizing soil condition 

criteria, such as organic 

matter, in program 

guidance; and

Encouraging participants 

in USDA programs to adopt 

resource management 

techniques that manage 

for soil quality rather than 

erosion alone.

2. Develop data and analytical 

tools to support soil quality 

protection and improvement. 

Actions will include:

Accelerating soil surveys 

and soil survey updates in 

areas of the country where 

better or more current 

information is needed to 

support efforts to focus on 

soil quality;

Monitoring soil quality 

and validating soil quality improvements. Current 

tools allow estimates of soil 

carbon trends on cropland 

and pastureland; we will 

continue research aimed at 

providing tools to address 

indicators for additional soil 

properties and for additional land uses; and

Developing field-scale tools 

to enable producers to 

assess costs and benefits 

associated with various soilenhancing practices.

•

•

•

•

•

•

MISSION GOALS 25

NRCS field employees assess soil condition on a banana plantation 

near Hilo, Hawaii.

for farming operations to 

degrade soil quality. Examples 

include providing assistance for:

Farming practices that 

optimize the use of 

equipment and reduce soil 

compaction;

Adoption of diversified 

cropping systems;

Improving irrigation water 

management to avoid 

salinity and reduce irrigationinduced erosion; and

Planning and implementing 

compliance plans for highly 

erodible lands.

•

•

•

•
3. Cooperate in the 

development of innovative 

technologies that enhance soil 

quality and help achieve other 

environmental goals, such as 

reducing atmospheric carbon, 

through: 

Agreements with Federal, 

Tribal, State, local, and 

private entities to engage 

in research to develop basic 

science;

Grants for pilot testing and 

adapting new technology 

for on-farm use.

•

•

Soils Information Enables 

Cooperative Action

Soils information is an 

important decisionmaking tool for planning 

across the landscape, 

not just on agricultural 

land. Engineers, 

zoning commissions, 

homeowners, developers, 

and others use our 

information to help make 

good land management 

decisions. 

NRCS leads the National 

Cooperative Soil Survey 

(NCSS)—a nationwide 

partnership of Federal, 

regional, Tribal, State, 

and local agencies and 

institutions. This partnership works cooperatively 

to investigate, inventory, 

document, classify, and 

interpret soils and to 

disseminate and promote 

the use of information 

about the soils of the 

United States and its Trust 

Territories. 

NRCS provides the 

scientific expertise to enable the NCSS to develop 

and maintain a uniform 

system for mapping and 

assessing soil resources, so 

that soil information from 

different locations can be 

shared easily.

4. Accelerate understanding 

and adoption of precision 

farming technology through:

Partnering with private 

sector entities, such as 

equipment manufacturers, 

to provide information and 

demonstrate the soil quality 

benefits of precision farming 

and reduced tillage; and

Encouraging the private 

sector to develop precision 

farming technology for 

small equipment and small 

operations.

•

•

P R O D U C T I V E L A N D S

26 MISSION GOALS
H E A L T H Y E N V I R O N M E N T

MISSION GOALS 27
Foundation Goals: 

Clean and Abundant Water

H

H
MISSION GOALS 29

H E A L T H Y E N V I R O N M E N T

Outcome: The quality of surface waters and 

groundwater is improved and maintained 

to protect human health, support a healthy 

environment, and encourage a productive 

landscape.

Objective: By 2010, agricultural producers 

will reduce potential delivery of sediment and 

nutrients from their operations.

Indicator: By 2010, potential sediment 

delivery from agricultural operations will 

be reduced by 70 million tons.

Baseline: In 2003, potential sediment 

delivery was 970 million tons from 

agricultural operations.

Indicator: By 2010, potential delivery of 

nitrogen from agricultural operations will 

be reduced by 375,000 tons.

Baseline: In 2003, potential annual 

nitrogen delivery from agricultural operations was an estimated 6 million tons.

Indicator: By 2010, potential delivery of 

phosphorus from agricultural operations 

will be reduced by 70,000 tons.

Baseline: In 2003, potential annual 

phosphorus delivery from agricultural 

operations was an estimated 360,000 tons.

•

•

•

•

•

•

Outcome: Water is conserved and protected 

to ensure an abundant and reliable supply 

for the Nation.

Objective: By 2010, conserve 8 million 

acre-feet of water.

Baseline: In 2005, an estimated 2.5 

million acre-feet of water were conserved. 

•

•

Introduction

The Nation’s abundant freshwater supply is distributed 

unevenly across the landscape, throughout the seasons, 

and from year to year. In many areas, concerns are 

growing about the adequacy of the available ground and 

surface water supply and the quality of the water to support 

intended uses. Coupled with these concerns are the threats to 

public health and safety caused by floods and drought. 

As the single largest user of land and water 

resources, agriculture has a significant role in 

water management. Well-cared-for watersheds 

are fundamental to ensuring clean and 

abundant water resources. Comprehensive 

watershed planning, undertaken by local 

residents and based on local natural 

resource conditions, provides a basic tool 

for communities to manage for reliable and 

adequate supplies of clean water. 

NRCS has established objectives for sediment 

and nutrient reduction as indicators of 

the general trend in managing potential 

agricultural challenges to water quality. We 

are conducting studies to better determine 

the effects of conservation practices on 

water quality. When data are available, the 

current objectives may be replaced with 

more comprehensive indicators of improved 

watershed health. 
P R O D U C T I V E L A N D S

30 MISSION GOALS

St. Lawrence River

Note: Data were aggregated to 8 by 8 kilometer cells

(24.7 square miles). See text for explanation of how the

map and the estimates were made.

 Onsite Environmental Outcomes

-- Per-Acre Sediment loss from water erosion

-- Per-Acre Wind erosion rate *(Most critical 6%)

-- Per-Acre Nitrogen lost with waterborne sediment

-- Per-Acre Nitrogen dissolved in surface water runoff

-- Per-Acre Nitrogen dissolved in leachate

-- Per-Acre Phosphorus lost with waterborne sediment

-- Per-Acre Phosphorus dissolved in surface water runoff

-- Soil quality degradation indicator

Source: Potter, Steven R., Dean Oman, Lee Norfleet, Jerry Lemunyon, Robert Kellogg, Jay Atwood, and Susan Andrews.

 2006 (forthcoming). Model Simulation of Soil Loss, Nutrient Loss, and Change in Soil Organic Carbon Associated 

 with Crop Production. United States Department of Agriculture, Natural Resources Conservation Service. In press.

Map 1. Priority Cropland Acres with Highest Potential for Soil Loss, Nutrient Loss,

 and Soil Quality Degradation.

Number of Onsite

Environmental

Outcomes with

Most Critical 15%

of Cropland Acres

2-4

Over 4

1-2

1 or less

Region boundaries

Major rivers

State boundaries

Puerto Rico/U.S. Virgin Islands

(No Data) Alaska

(No Data) 

Hawaii

(No Data)

Pacific

Basin

(No Data)

Guam

American Samoa

Northern

Marianas

Situation

Water Quality

In many watersheds where 

water quality problems have 

been identified, sources of 

impairment include point 

sources such as discharge 

pipes and nonpoint sources 

such as runoff from city 

streets, residential areas, and 

agricultural lands. 

Agricultural runoff can 

carry a number of potential 

pollutants into the Nation’s 

streams, lakes, ground water 

supplies, and estuaries. States 

and Tribes have identified 

sediment and nutrients as the 

most extensive agricultural 

contaminants affecting 

surface water quality, while 

nutrients and agrichemicals 

are the major concerns for 

groundwater. 

Nitrogen and phosphorus are 

the primary nutrients that 

contribute to agricultural 

nonpoint source pollution in 

lakes, streams, and oceans. 

Excessive nitrogen and 

phosphorus in waterways 

can cause algal blooms that 

decrease the amount of 

dissolved oxygen needed 

to sustain aquatic life. In the 

extreme, a hypoxic condition 

can develop where excessive 

nutrients are present.

Pathogens and pharmaceuticals from livestock and poultry 

operations are emerging water 

quality issues. With continuing 

concentration trends in animal 

agriculture, concerns about 

the potential for impairment 

of water and air resources 

have increased.

Agriculture activities may also 

contribute to water quality 

problems, associated with 

selenium and salinity. 

In slightly elevated 

concentrations, selenium, 

a naturally occurring trace 

element, is toxic to fish and 

other aquatic and terrestrial 

organisms. Increased salinity 

in surface water from irrigation return flow can threaten 

drinking water quality and 

negatively impact aquatic life. 

Temperature also has an 

impact on water quality. 

Significant changes occur to 

a stable aquatic ecosystem 

when the vegetative canopy 

is removed. Stream segments 

with little to no canopy have 

elevated water temperatures 

due to increased exposure to 

solar ultraviolet (UV) radiation. 
H E A L T H Y E N V I R O N M E N T

������������������������������������

�������������������������������

���������������� ���������������������������

�����������������������

��������������������

��

��������������������

�����������������

��

������

�����

����

�������

�����

����

���������������

���

���������������������������

�

�������������������������������������������������������������������������

Great Lakes Regional 

Collaboration 

Initiative

As part of a Great 

Lakes Interagency 

Task Force, NRCS is 

partnering with Tribes, 

Great Lakes States, and 

local interests to design 

a strategy to restore 

and protect the largest 

freshwater system in 

the world. Building 

on a broad collection 

of existing efforts to 

improve and restore the 

Great Lakes, the Great 

Lakes Interagency 

Task Force coordinates 

the development of 

consistent Federal 

policies, strategies, 

projects, and priorities 

for addressing the 

restoration and 

protection of the Great 

Lakes system. 

MISSION GOALS 31

Water Management

Each year, droughts and 

floods affect some part 

of the Nation. Land use 

changes affecting hydrology 

can diminish water supply, 

increase flood risks, and pose 

risks to agriculture, natural 

systems, and human health 

and safety. Development 

generally expands the 

impervious surfaces in 

a watershed, reducing 

infiltration opportunities 

and increasing risks from 

accelerated runoff. 

Some areas that once had 

plentiful water supplies are 

now beginning to experience 

shortages as development 

and associated water demand 

increases. In flood-prone 

or drought-stricken areas, 

preparedness planning efforts 

are needed to minimize 

potential for adverse impacts.

Agriculture is one of 

the largest users of the 

Nation’s surface water and 

groundwater, with irrigation 

being the greatest use. In 

2000, almost 34 percent 

of the water withdrawn 

from surface water and 

groundwater was used in 

irrigated agriculture. 

In arid and semi-arid areas, 

crop production depends 

almost entirely on irrigation. 
Competition for water in these 

areas is increasing as a result 

of increased human populations. In recent years, irrigation 

has been increasing in eastern 

States, resulting in water 

shortages in several States. 

Key Tasks

A long-standing priority for 

NRCS, in partnership with 

many diff erent entities, is 

assisting individuals and 

communities with managing 

a stable and safe water 

supply. These cooperative 

eff orts have been marked 

by substantial gains over 

the past decades. Many of 

our ongoing conservation 

management eff orts will 

be sustained, as will our 

partnerships. Increased 

eff orts will complement this 

investment and accelerate 

action to ensure clean and 

abundant water resources to 

meet the Nation’s needs. 

Current Conservation 

Management

As the leading Federal agency 

for assisting in restoring 

watershed health on private 

land, NRCS provides technical 

and fi nancial assistance to 

producers who implement 

conservation practices and 

management strategies that 

benefi t water quality and 

improve water management. 

Agricultural producers 

can effi ciently use water, 

promote water storage, and 

minimize potential loss of 

sediment and nutrients from 

their operations by applying 

conservation practices. 

Erosion control practices 

keep sediment and 

nutrients from the Nation’s 

waters. Other practices 

applied specifi cally to 

protect surface water 

include fi lter strips and 

other types of buff ers along 

streambanks, wetlands, and 

shorelines. 

Comprehensive nutrient 

management plans 

minimize potential for 

nutrient and pathogen 

losses from animal feeding 

operations.

Effi cient irrigation systems, 

such as micro-irrigation 

and low-pressure sprinkler 

systems, can reduce water 

need, risk of irrigationinduced erosion, and 

energy costs, while 

maintaining yields. Water 

•

•

•
Effi cient irrigation systems help save water and 

decrease leaching of salts.

Controlling invasive species 

can improve water availability.

Land use planning can 

mitigate the eff ects of 

drought or fl oods.

•

•

NRCS also provides 

leadership and 

assistance for 

cooperative action 

on a watershed 

basis. We help 

communities use 

a comprehensive 

watershed 

approach that 

provides multiple 

natural resource 

and societal 

benefi ts. These 

benefi ts include 

the reduction of 

water treatment 

costs, the 

improvement of 

freshwater aquatic habitats, 

and the enhancement of 

coastal health and near-shore 

aquatic habitats, which 

also serve to benefi t local 

economies. 

management 

plans, including 

evapotranspiration 

management, 

address salinity. 

Restoring or 

creating wetlands in 

strategic locations 

can improve ground 

and surface water 

quality and help 

manage water 

quantity.

Restoring riparian 

buff ers to reduce UV 

radiation can have 

benefi cial eff ects 

on shallow streams, 

especially during latesummer, low-fl ow periods 

when dissolved oxygen 

concentrations are reduced. 

•

•
P R O D U C T I V E L A N D S

34 MISSION GOALS

Cooperative Action Provides Essential Data for 

Water Management

Managing water resources to maintain or improve 

water quality and to balance competing demand 

requires cooperation among Federal, Tribal, State, 

and local agencies and private organizations. 

Good management relies on accurate and timely 

information. NRCS, in partnership with other 

Federal and State agencies, conducts snow surveys 

to provide information on future water supplies 

in 12 western States and Alaska. NRCS fi eld 

staff collect and analyze data on depth and water 

equivalent of snowpack from more than 900 snow 

courses and 700 automated mountain sites, and 

estimate annual water availability, spring runoff , 

and summer streamfl ows. Th e National Weather 

Service includes the forecasts in their river 

forecasting function. 

Individuals, organizations, and State and Federal 

agencies use these forecasts for decisions relating 

to agricultural production, fi sh and wildlife 

management, municipal and industrial water 

supply, urban development, fl ood control, 

recreation power generation, and water quality 

management. Major cooperators include the 

Bureau of Reclamation; Army Corps of Engineers; 

Bonneville Power Authority; State and local 

agencies; power utilities; irrigation districts; 

Tribal nations; the Provincial Government of 

British Columbia, Alberta, the Yukon Territory; 

and Mexico. 

This sediment basin prevents sediment from entering streams.
Strategic Emphases

To accelerate existing eff orts and stimulate new 

activities to improve, protect, and maintain 

water quality and quantity, NRCS will:

1. Invest in improved technology and information needed to support planning for watershed 

health. Specifi c tasks are to:

Accelerate eff orts to develop methods 

and models to credibly estimate eff ects of 

conservation measures on water quality and 

quantity;

Develop fi eld-scale technology to quantify 

the eff ects of conservation on water quality 

and quantity to foster development of 

markets for private sector investment;

Integrate conservation benefi ts information 

into watershed-scale planning assistance to 

help communities focus resources on priority 

practices and geographic areas;

Expand water supply forecasting nationwide 

to assist individuals and communities that are 

beginning to experience water quantity challenges; and

•

•

•

•

Work with the USDA Agricultural Research 

Service and Cooperative State Research, 

Education, and Extension Service to identify 

water-effi cient plants and technologies as 

a research priority. Make water-effi cient 

conservation plantings a Plant Materials 

Center research and development priority.

2. Provide incentives, including market-based 

incentives, for:

Entities to develop, promote, and deliver 

innovative technologies to meet water quality 

and quantity objectives;

Converting irrigated land to less waterintensive uses, particularly in areas 

experiencing water shortages, or converting 

frequently fl ooded areas to fl oodplains or 

wetlands;

Maintenance and improvement of existing 

drainage systems to achieve water quality 

and quantity objectives; and

Adoption of water conserving crops or crop 

varieties and production systems.

•

•

•

•

•

In-fi eld watering helps water quality by keeping cattle out of streams.

H E A L T H Y E N V I R O N M E N T

MISSION GOALS 35
Foundation Goals: 

Healthy Plant and Animal Communities 
H E A L T H Y E N V I R O N M E N T

Introduction

Healthy plant and animal communities 

provide economic and aesthetic benefi ts 

and are essential to people’s quality of life. 

Sustaining plant and animal communities cannot 

be achieved by focusing on individual species 

or isolated areas. Rather, the web of interacting 

relationships between plant and animal 

species within a given ecosystem, and 

their relationship to the physical features 

and processes of their environment, must 

be sustained to maintain the health and 

vigor of the system. 

Outcome: Working lands and waters provide habitat 

for diverse and healthy wildlife, aquatic species, and 

plant communities.

Objective: By 2010, an additional 9 million acres of 

essential habitat will be improved and managed to 

benefi t at-risk and declining species.

 

Baseline: In 2005, NRCS helped farmers and ranchers 

improved habitat for declining and at-risk species on 

2 million acres.

Outcome: Grassland, rangeland, and 

forest ecosystems are productive, diverse, 

and resilient. 

Objective: By 2010, farmers, ranchers, and 

private non-industrial forest landowners will 

apply management that will maintain or 

improve long-term vegetative condition on 

150 million acres of grazing and forest land.

Baseline: In 1999, about 500 million acres of 

non-Federal grazing land and non-industrial 

forest were considered to be in minimal or 

degrading vegetative condition.

MISSION GOALS 37

Outcome: Wetlands provide quality habitat for 

migratory birds and other wildlife, protect water 

quality, and reduce fl ood damages. 

Objective: By 2010, resource managers will create, 

restore or enhance 1.5 million acres of wetlands on 

non-Federal lands. 

Baseline: In 2003, there were 111 million wetland acres 

on non-Federal lands in the contiguous United States.
P R O D U C T I V E L A N D S

38 MISSION GOALS

Situation 

Permanent Vegetation 

Resources 

Healthy, vigorous plant 

communities on rangeland, 

native and naturalized pasture, 

and forest lands protect soil 

quality, prevent soil erosion, 

provide sustainable forage 

and cover for livestock and 

wildlife, provide fiber, improve 

water quality, provide diverse 

habitat for wildlife, and 

sequester carbon. Non-Federal 

lands in these ecosystems 

make up almost one-half of 

the area of the 48 contiguous 

United States. Because the 

acreage of range, native and 

naturalized pasture, and 

forest ecosystems is so great, 

poor cover quality can have 

significant effects on the 

Nation’s soil, water, 

and wildlife.

Active, science-based 

management of vegetation 

is essential to maintaining 

healthy, diverse, and resilient 

ecosystems. Preventing 

degradation requires careful 

planning and management, 

takes into consideration all 

resource issues for a site, 

and is more cost effective 

than correcting a problem 

after it has developed, 

especially in low rainfall areas. 

Healthy and diverse plant 

communities on rangeland 

are better able to withstand 

drought and invasive species. 

Well-managed forests are less 

susceptible to pests, disease, 

and catastrophic fires. 

Invasive plants are a major 

concern in native grasslands, 

rangelands, and forests. An 

“invasive species” is one that 

has been introduced into an 

ecosystem where it is not 

native. Invasive plants may 

crowd out native plants, make 

areas more susceptible to catastrophic fire, degrade habitat 

quality for native wildlife, and 

may harm economic, environmental or human health. 

For example, cheatgrass has 

accelerated the fire cycle in 

western States by twenty-fold, 

and saltcedar has diminished 

water supplies, altered soil 

chemistry, and affected native 

plants and wildlife.

Cooperative Actions 

Protect Rangelands

NRCS works cooperatively with private sector 

organizations, State 

and Federal agencies, 

and Tribes to protect 

rangelands. An example 

of these locally led, 

cooperative efforts is 

the Malpai Borderlands 

Group, which is working 

to restore rangeland in 

southwest New Mexico 

and southeast Arizona. 

The Malpai Group was 

organized and led by area 

ranchers who saw that 

the land, and their way 

of life, were threatened 
MISSION GOALS 39

H E A L T H Y E N V I R O N M E N T

Fish and Wildlife Habitat

Privately-owned and other 

non-Federal lands provide 

habitat for much of the 

Nation’s wildlife. When people 

use the land, they change the 

quantity and the quality of 

the habitat the land provides 

to wildlife and, therefore, the 

number and types of wildlife 

that can live there. The use and 

condition of the land affects 

aquatic habitat as well. 

Fragmentation and loss of 

habitat resulting from urban 

and suburban development 

and from intensive agricultural 

uses have contributed to 

declines in populations of 

many terrestrial and aquatic 

species. Invasive species 

by deteriorating rangeland 

and by the spread of development and subdivisions from 

nearby towns.

The group originated as a 

series of informal discussions 

among ranching neighbors 

and was formally organized 

as a non-profit organization 

in 1994. Since then, the 

group has pursued activities 

to protect and restore 

the ecological diversity 

and productivity of the 

land, including rangeland 

restoration, reintroduction 

of fire, wildlife conservation, 

and endangered species 

recovery. The Malpai 

Borderlands Group pioneered 

the GrassBank, which 

allows ranchers to rest their 

grasslands while sustaining 

their livestock. Grass on one 

ranch is made available to 

another rancher’s cattle in 

return for conveying landuse easements prohibiting 

subdivision. The Malpai 

Borderlands Group holds the 

easements.

Key partners in the group 

include Arizona and New 

Mexico ranchers, Hidalgo and 

Whitewater Draw Natural 

Resource Conservation 

Districts, NRCS, USDA 

Forest Service, USDOI 

Bureau of Land Management 

and Fish and Wildlife 

Service, Arizona State Land 

Department, universities in 

New Mexico and Arizona, 

Arizona and New Mexico 

Game and Fish Departments, 

the Animas Foundation, and 

The Nature Conservancy.

are second only to habitat 

destruction as the cause of 

native species declines. 

Protecting specific ecosystems 

and landscapes—including 

wetlands, grasslands, 

floodplains, and certain types 

of forests—can help support 

wildlife and aquatic species 

and provide benefits in the 

form of recreation, hunting, 

and other forms of 

agri-tourism. Improving the 

habitat for declining and at-risk 

species is key to preventing 

further declines and ensuring 

the continued survival of those 

species and the overall health 

of the ecosystems of which 

they are part. 
P R O D U C T I V E L A N D S

40 MISSION GOALS

Wetlands 

Wetlands provide wildlife 

habitat, protect and improve 

water quality, attenuate water 

flows due to flooding, and 

recharge ground water. Land 

use changes led to the drainage and alteration of almost 

54 percent of wetlands, and in 

some States, the loss is as high 

as 90 percent since the 

beginning of the last century. 

Increased knowledge about 

the importance of wetland 

functions influenced national 

policy and moved the Nation 

toward restoring wetlands. 

In 1985, the Nation’s focus was 

on “no net loss” of wetland 

acreage. National Resources 

Inventory (NRI) data for 1997 

and 2003 showed that the 

“no net loss” goal had been 

achieved, and there was no 

longer an overall net loss of 

wetlands occurring within 

the contiguous United 

States. In 2004, based in part 

on the accomplishments 

documented by the NRI and 

a recognition of the benefits 

wetlands give the Nation, the 

President set a national goal 

to restore, create, enhance, 

and protect 3 million acres of 

wetlands by 2010.

Key Tasks

A long-standing priority for 

NRCS, in partnership with 

many different entities, is 

assisting individuals, communities, and Tribes to maintain, 

restore, and enhance the 

productive capacity of grazing 

lands and forestland. We also 

have decades of experience 

in helping people maintain, 

restore, or enhance wetland 

ecosystems and fish and 

wildlife habitat. In the period 

covered by this strategic plan, 

our current conservation 

efforts will be continued, as 

will our partnerships with 

Federal and State agencies, 

Tribes, and local governments 

and organizations. Strategic 

emphases to implement 

our three key strategies will 

accelerate progress toward 

our goals.

Current Conservation 

Management 

NRCS helps people plan 

sustainable use and protection 

of grassland, rangeland, forestland, and critical habitat. We 

provide technical assistance 

and tools for comprehensive 

conservation management 

systems to prevent problems 

and maintain good conditions.

On grazing land, vegetative 

degradation is addressed 

through replanting and ������������������������������������������������

������������������������������������������������������������������������������

� ���������������������������������������������������������������

��������������

���������� ���������� ����������

������

������

������

������

�������

�������

��������

�������

�������

�������

�������

�

��������� ��������� ���������
H E A L T H Y E N V I R O N M E N T

through management 

practices, including 

eradicating or controlling 

invasive species, applying 

sustainable stocking densities, 

water management, and 

proper nutrient management. 

Assistance to non-industrial 

private forest landowners 

and managers includes tree 

and shrub establishment and 

forest stand improvement. 

We help farmers, ranchers, 

non-industrial private forest 

landowners, and other natural 

resource managers with 

wildlife considerations when 

they plan the use of their land. 

These land stewards consider 

wildlife needs for shelter; 

access to water; and food in 

proper amounts, locations, 

and times to sustain wildlife 

populations that inhabit the 

area during a portion of their 

life cycle. Management may 

include controlling invasive 

species, adopting practices to 

improve grassland or forest 

habitat, or managing water 

levels in wetlands to control 

vegetation. Actions to sustain 

and enhance aquatic habitat 

include applying conservation 

practices that filter potential 

pollutants and moderate 

stream temperatures. 

Our priority for action is 

helping to maintain or 

enhance habitat for at-risk 

species so that populations 

remain stable or increase. 

NRCS supports voluntary 

incentive-based approaches 

to wetland restoration. 

Between the 1960s and 

1980s, thousands of acres 

of lower Mississippi River 

Valley bottomland hardwoods 

were converted to row-crop 

agriculture, resulting in 

loss of habitat essential for 

migratory birds including 

waterfowl and neotropical 

songbirds. Fragmentation 

of the landscape also damaged habitat for local black 

bears, preventing genetic 

interchange among individual 

black bear populations. In 

the 1990s, NRCS, through 

its Wetlands Reserve Program 

(WRP), became an important 

partner in efforts and initiatives to restore the critical 

wetlands and woodlands of 

the Mississippi Delta. The 

Black Bear Corridor Special 

Project, an initiative designed 

to create a contiguous 

wooded and wetland corridor 

between two black bear 

populations in Louisiana, 

is one of many projects in 

which NRCS cooperates. The 

Black Bear Corridor Special 

Project is targeting easement 

acquisition and restoration 

on 56,250 acres in the 

State. Future goals include 

a wooded wetland corridor 

from northeast Louisiana 

to the Gulf of Mexico. The 

project will also provide 

uninterrupted habitat for 

neotropical songbirds and 

waterfowl during spring 

and fall migrations between 

South America and Canada.

Key cooperators include 

cooperating landowners, 

Louisiana soil and water 

conservation districts, Ducks 

Unlimited, Black Bear 

Conservation Committee, 

USDOI Fish and Wildlife 

Service, The Nature 

Conservancy, U.S. 

Geological Survey National 

Wetlands Research Center, 

National Wild Turkey 

Federation, USDA Farm 

Service Agency, and many 

other local, State and Federal 

agencies, committees, societies, refuges, and land trusts.

Cooperative Action Enhances Wildlife Habitat 

in Bottomland Hardwoods

We also make wetlands 

determinations and conduct 

compliance reviews to 

MISSION GOALS 41
P R O D U C T I V E L A N D S

ensure that USDA program 

participants are meeting 

their responsibility to protect 

wetlands.

Efforts to ensure that diverse 

and healthy ecosystems are 

sustained involve partnerships 

across ownership and political 

boundaries. Many entities 

with different roles cooperate 

in these efforts. As part of 

the assistance we provide on 

private lands, NRCS works to 

improve coordination among 

these many stakeholders. 

Strategic Emphases

To increase the effectiveness 

of our ongoing efforts to help 

people protect and enhance 

plant and animal communities 

on private lands, NRCS will:

1. Enhance the ability 

to measure conditions 

and project the results of 

management options. Specific 

actions include:

Accelerate development of 

methodology to measure and 

monitor grazing land health;

Enhance technology 

to measure effects of 

conservation practices on 

agricultural lands, wetlands, 

and wildlife resources; and

•

•

Cooperate with Tribes, State 

and local governments, 

Federal agencies, and 

private sector organizations 

to develop and adopt a set 

of standard, science-based 

resource indicators that 

could be used to assess the 

condition of selected fish 

and wildlife resources; 

2. Develop enhanced technology, including expanding 

plant trials to develop plants 

that have a natural resistance 

to pests.

3. Enhance effectiveness of 

efforts to protect ecosystems by: 

Expanding partnerships 

with State and local 

governments, Federal 

agencies, Tribes, and private 

sector organizations to 

develop collaborative 

strategies to address grazing 

land health, including 

efforts to control invasive 

species. 

Facilitating the adoption 

of landscape-scale habitat 

protection plans that provide 

at-risk and declining species 

access to water, food, and 

shelter, as well as corridors 

for seasonal migration. 

Provide funds to help 

develop and implement such 

area-wide plans. 

•

•

•

Cooperating with stakeholders in the public and 

private sectors to develop 

watershed and area-wide 

plans that are designed 

to restore, protect, and 

manage wetlands.

4. Enhance the performance 

of programs we administer to 

protect wetlands and other 

wildlife habitat by:

Actively managing 

conservation easement 

lands under the Agency’s 

administrative control 

to maximize benefits to 

wildlife and wildlife habitat;

Developing wildlife 

management plans for all 

wetland acres enrolled in 

NRCS programs; and

Focusing funding 

resources in areas with 

the greatest potential to 

restore wetlands on the 

agricultural landscape, that 

is, on areas where there 

are opportunities and 

infrastructure in place for 

restoration.

•

•

•

•

42 MISSION GOALS
NRCS provides assistance for a prescribed 

burn on the Wichita Wildlife Refuge.

NRCS works cooperatively with the U.S. Fish and Wildlife Service and the 

Caddo Tribe’s Environmental Officer on Oklahoma’s Wichita Wildlife Refuge.

Venture Goals describe areas in which we anticipate the need for 

greatly expanded activity in the future. Those areas are: 

Clean Air; 

An Adequate Energy Supply; and

Working Farm and Ranch Lands

The impacts of agriculture on air quality are small-scale and local 

in nature, but may be signifi cant in certain locales. In those areas, 

public pressure on producers to take action is increasing. 

Agriculture makes a small contribution to greenhouse gas emissions, 

but has the potential to off set emissions caused by other sectors. 

The high cost of energy, the need to reduce emissions associated 

with fossil fuels, and the income opportunities for farmers and 

ranchers with an increasing renewable energy economy are focusing 

attention on energy conservation, the production of renewable 

fuels, and development of alternative energy sources. 

Challenges to natural resources and agriculture resulting from 

development in what had been largely agricultural watersheds have 

been identifi ed as a major concern by our customers. The conversion 

rate of cropland, grazing land, and forest land to developed uses 

is accelerating as a result of low-density development, increasing 

household formation, and larger lot sizes. 

NRCS has had a relatively minor role in addressing these issues in 

the past, and we are not yet ready to set Agency-level performance 

measures for these issues. But the need for information and 

analytical tools to evaluate strategies to address the issues is 

growing. We are cooperating with many agencies and private sector 

entities to develop good data on conditions and measurement 

techniques, and anticipate that activities directed to these issues will 

increase signifi cantly over the next few years. 

•

•

•

Venture Goals
Venture Goals: Clean AIR
H E A L T H Y E N V I R O N M E N T

Introduction The quality of the air aff ects 

every component of the 

natural system: soil, water, 

plants, animals, and people. 

Because of atmospheric mixing, 

air emissions and their impacts 

may be in close proximity or 

thousands of miles apart. 

Outcome: Agriculture makes a positive 

contribution to local air quality and the 

Nation’s eff orts to sequester carbon.

Objective: To be established. 

The objective will be 

measured by tons of 

carbon sequestered.

Baseline: To be 

determined. 

NRCS is currently 

evaluating 

several methods 

on how to best 

evaluate carbon 

sequestration.

MISSION GOALS 47
P R O D U C T I V E L A N D S

Situation

Agriculture and forestry are a 

small, but sometimes locally 

important, source of emissions. They also can do much 

to benefi t the air by mitigating 

emissions from other sources 

and by sequestering carbon.

Air Quality

Agricultural emissions that 

can aff ect air quality may be 

associated with wind erosion, 

prescribed burns, animal 

confi nement, and chemical drift. 

Over 120 counties nationwide 

are designated as nonattainment areas for one or 

more criteria air pollutants—

meaning they have air 

pollutant concentrations that 

exceed the national standard 

established under the Clean 

Air Act. Where agriculture is 

identifi ed as a source of air 

pollutants in non-attainment 

areas, State Implementation 

Plans may require agriculture 

to reduce emissions.

Odors from animal waste, 

volatile organic compounds, 

and sulfur and nitrogen 

emissions are not regulated 

nationally. As development 

presses into rural areas, 

however, public concern 

about odors and emissions 

from agricultural operations 

is increasing and State and 

local jurisdictions are requiring 

agriculture to mitigate or 

control emissions.

Greenhouse Gases

Agriculture accounts for 

about 8 percent of U.S. 

greenhouse gas (GHG) 

emissions, with most traced 

to nitrous oxide (N2O) and 

methane (CH4) emissions 

from soils management and 

rice and livestock production. 

Although a small source, 

agriculture is working to 

minimize emissions. Gains in 

fertilizer and fuel effi ciency 

and improved nutrient 

management reduce nitrous 

oxide emissions from 

agricultural activities.

Agriculture and forestry 

also are the Nation’s carbon 

sinks, storing carbon in 

forests, woodlots and urban 

trees, agricultural soils, and 

grasslands. Although carbon 

stocks in agricultural soils have 

increased since 2000, overall 

sequestration has declined 

since the mid-1990s. Experts 

project substantial opportunity 

for long-term soil carbon gains. 

Carbon credit markets may 

off er a new economic incentive 

for increasing soil carbon. 

48 MISSION GOALS

Source: U.S. Environmental Protection Agency, 2005

Map 4. Counties Designated “Non-attainment” for Clean Air Act’s National Ambient 

 Air Quality Standards (NAAQS).

Species at Risk

3 NAAQS Pollutants

4 NAAQS Pollutants

2 NAAQS Pollutants

1 NAAQS Pollutants

Puerto Rico/U.S. Virgin Islands

(No Data)

Alaska

Hawaii

(No Data)

Pacific

Basin

Guam

American Samoa

Northern

Marianas
H E A L T H Y E N V I R O N M E N T

Key Tasks

As air quality and atmospheric 

change concerns increase, 

we anticipate an expanded 

conservation focus on these 

issues. In the period covered 

by this strategic plan, our 

current conservation eff orts 

will be continued, as will our 

partnerships with Federal 

and State agencies, Tribes, 

and local governments and 

organizations. Strategic 

emphases will accelerate 

progress toward our goals.

Current Conservation 

Management

NRCS currently incorporates 

air quality considerations 

into conservation planning 

with producers. Conservation 

measures adopted include 

windbreaks and buff ers, 

integrated pest management, 

prescribed burning, and 

comprehensive nutrient 

management to minimize 

emissions and their transport. 

Many of the practices that 

conserve soil, water, or air 

quality also store carbon. 

NRCS and Colorado State 

University developed a carbon 

management tool (COMET-VR) 

that enables landowners to 

estimate carbon sequestered 

based on agricultural 

management history. Results 

can be used to help producers 

and landowners make 

decisions about participating 

in carbon credit markets. 

NRCS is revising, modifying, 

and adapting conservation 

standards and specifi cations 

to better address air issues. 

For example, a new technical 

standard for air management 

provides technical 

guidance for implementing 

conservation options to 

minimize emissions.

�������������������������������������������������

��������������������������������������������������������������������

���

���

���

����������

�����

�����

����

����

����

����

�

���� ���� ���� ���� ���� ���� ����

�������

�����������������

�������������������

������������������������

����������������������

��������� �������������

��������������������������

��������������������������

��������������������������

��������������������

Strategic Emphases

To enhance assistance to 

producers in addressing air 

quality issues and seizing new 

carbon market opportunities, 

NRCS will:

1. Increase understanding of 

air quality and greenhouse gas 

emissions issues by:

Developing and 

implementing a training 

program to increase 

employee understanding 

of air quality issues and 

the eff ects of conservation 

practices on air quality; and 

•

MISSION GOALS 49
P R O D U C T I V E L A N D S

producers and help them 

mitigate for changing 

environmental conditions.

3. Accelerate adoption of 

practices to address air quality 

and GHG emissions by:

Working with Tribes and 

State and local entities to 

develop regional plans 

to address agricultural 

contributions to air quality 

problems;

Ensuring that air quality 

and GHG emissions are 

emphasized in conservation 

planning;

Providing incentives for 

the demonstration of new 

technologies that benefit air 

quality; and

Encouraging development 

of markets for emissions 

reductions and environmental credit trading to benefit 

air resources and agriculture 

by:

Collaborating in research 

to quantify carbon 

sequestration and emission reduction benefits 

of conservation practices; 

and 

Facilitating voluntary 

reporting of GHG emission 

reduction and carbon 

sequestration.

•

•

•

•

•

•

Initiating an informational 

program to increase 

landowner and community 

awareness of air quality 

issues and opportunities 

for improvement, and 

facilitating discussion 

between agricultural and 

non-agricultural community 

segments.

2. Acquire and develop 

needed resource data and 

technology. Specific actions 

include:

Identifying locations, 

extent, and trends of air 

quality problems related to 

agriculture;

Partnering with private and 

public sector organizations 

to develop new technology 

and practices to mitigate air 

quality problems related to 

agriculture;

Implementing tests of the 

Wind Erosion Prediction 

System (WEPS) to assist with 

wind-generated particulate 

matter estimates; 

Expanding plant materials 

research to develop plant 

varieties that maximize 

carbon sequestration; and

Monitoring changes in 

climate through SNOwpack 

TELemetry (SNOTEL) and 

Soil Climate Analysis 

Network (SCAN) to inform 

•

•

•

•

•

•

50 MISSION GOALS
Field windbreaks protect against wind erosion.

Cooperative Action for 

Air Quality

Th e NRCS chairs the 

Agricultural Air Quality 

Task Force, established 

in 1996. Th e Task 

Force—made up of 

national leaders from 

farming, industry, health, 

and science—provides 

advice to the Secretary 

of Agriculture on 

agricultural air quality 

issues, data quality, and 

interagency air quality 

research eff orts. 

Th e Task Force has 

examined the role of 

agriculture in greenhouse 

gas emissions and climate 

change; volatile organic 

compounds, small 

particulates, and odors 

associated with livestock 

waste; and odor and 

visibility issues associated 

with livestock production. 

Task Force committees 

recently identifi ed a 

number of atmospheric 

research issues and 

priorities, ranging from 

better understanding of 

agriculture’s emissions and 

modeling of atmospheric 

processes to quantifying 

mitigation benefi ts and 

developing market-based 

opportunities.
Venture Goals: 

An Adequate Energy Supply
H E A L T H Y E N V I R O N M E N T

Introduction

As a result of increasing demand, 

the reliability, aff ordability, and 

sustainability of energy supplies will 

be continuing concerns in the years 

ahead. Agriculture’s long-term energy 

strategy will include eff orts to reduce 

demand through energy conservation 

and to develop alternative or renewable 

energy supplies and 

technologies. On-farm 

energy conservation 

and development also 

can reduce producers’ 

operating costs. Agriculture 

has signifi cant potential to 

contribute to the Nation’s 

energy supply through 

production of energy from 

renewable sources and 

biofuels. Development of 

conservation systems for 

the sustainable production 

of energy crops is a priority.

Outcome: Agricultural 

activities conserve energy and 

agricultural lands are a source 

of environmentally sustainable 

biofuels and renewable energy.

Objective: To be established. 

The objective will be measured by 

BTUs conserved.

Baseline: To be determined. 

NRCS is currently evaluating several 

methods on how to best evaluate 

fuel savings.

MISSION GOALS 53
P R O D U C T I V E L A N D S

Situation

The Nation’s energy 

consumption is expected to 

increase by 30 percent over 

the next 20 years. Improving 

energy management on farms 

and ranches could improve 

the environment, lower farm 

and ranch production costs, 

and decrease consumption of 

fossil fuels. Improving energy 

management includes energy 

conservation and energy 

production.

Energy Conservation

Energy-related costs are a 

significant farm operating 

expense. Depending on the 

region of the country and 

type of farming enterprise, 

energy related expenses can 

range from 10 to 30 percent of 

operating costs for producing 

major crops. In addition to 

reducing operating costs, 

energy conservation can 

reduce air pollutants and 

greenhouse gas emissions.

Farmers and ranchers have 

opportunities to conserve 

energy through many on-farm 

activities. For example, completing scheduled equipment 

maintenance ensures systems 

work at optimal levels; using 

legumes in crop rotations 

reduces energy needs by 

eliminating applications 

of fertilizer and other farm 

chemicals; and using efficient 

irrigation systems, such as 

micro-irrigation and low-pressure spray sprinkler systems, 

can reduce energy needs. 

Renewable Energy 

and Biofuels

Currently, about 6 percent of 

the total energy consumption 

in the United States comes 

from renewable resources. The 

increasing demand for energy 

will encourage further development of renewable energy 

sources. Environmentally 

sound production of renewable energy and biomass may 

provide a significant economic 

opportunity for agriculture.

Solar, wind, biogas (methane 

generation), and, in some 

instances, geothermal or 

hydropower energy, can be 

generated and used on or off 

the farm. Wind, the source of 

only a very small part of the 

renewable energy used, is 

the fastest growing form of 

renewable energy generation. 

Biomass—energy crops and 

trees and animal wastes—

accounts for about one-half of 

the current renewable energy 

consumed and has significant 

potential for expansion. Corn 

is currently the most widely 

used biomass energy crop. 

Native prairie grasses and 

fast-growing trees like poplar 

and willow are likely to surpass 

corn because they are cheaper 

to produce. Source: USDA, Office of the Chief Economist, 2004

Figure 6. Energy Use in Agriculture by Source, 1965 – 2004.

Quadrillion btu

Electricity

Natural Gas

LP Gas Gasoline

Diesel

1965 1970 1975 1980 1985 1990 1995 2000

0.2

0

0.6

0.4

1

0.8

1.2

1.6

1.4

1.8

54 MISSION GOALS
H E A L T H Y E N V I R O N M E N T

Key Tasks

As concerns increase about 

energy costs and air quality, 

we expect the need for 

conservation technical 

assistance to increase. While we 

are not yet ready to set Agency 

targets for energy, we are 

increasing cooperative efforts 

with many agencies and private 

sector entities to develop 

information and technology to 

address energy issues. 

Current Conservation 

Management 

Increasing concerns about 

the affordability and reliability 

of the energy supply led to 

the inclusion of an Energy 

Title in the 2002 Farm Bill. 

The legislation promotes the 

development of bio-based 

fuel products by encouraging 

Federal procurement of the 

products, providing grants and 

loans for renewable energy, 

and funding research and 

development on bioenergy. 

Many of the conservation 

practices that NRCS helps 

producers adopt reduce 

on-farm energy needs. Such 

practices include conservation 

tillage, precision farming, 

and fuel-efficient irrigation 

methods. In addition, NRCS 

provides technical and 

financial assistance to help 

farmers and ranchers reduce 

their dependence on fossil 

fuels by developing solar 

or wind energy to generate 

electricity or methane 

digesters. We are also 

providing grants to multi-farm, 

biomass utilization production 

facilities and community-wide 

biomass projects. 

�����������������������������������������������

����������������

�����

��

�����������

����������������

�������������

����������������

������������

�������������

����

�������

����

����������������

������������

�����

���������������������������������������������������������

������������

���

����������

��

NRCS encourages producers 

to conduct an energy audit as 

the first step toward successful 

energy management. A 

whole-farm energy audit 

assesses the energy use of 

an operation and identifies 

cost-effective changes that 

could be adopted. 

Cooperative Action to Advance 

Biomass Development

NRCS Plant Materials Centers 

evaluate plant materials for 

biomass production. Proven 

species are released to the private 

sector for commercial production. 

The Mississippi Plant Materials 

Center, working with the U.S. 

Department of Energy’s Biomass 

Power and Biofuel Feedstock 

Development Program, evaluated 

biomass crops and management 

techniques for plants that thrive 

in the Southeast. Switchgrass 

was determined to be the most 

productive with one cutting.

Information and technologies 

related to the use of renewable 

energy will be widely shared 

through the Biobased Products 

and Bioenergy Coordination 

Council. Recent expanded 

partnerships with the Department 

of Energy and Department of 

Interior will allow us to coordinate 

and share information on biomass 

research and climate change.

MISSION GOALS 55
P R O D U C T I V E L A N D S

Strategic Emphases

To encourage farmers to 

maximize fuel efficiency and 

produce environmentally 

sustainable renewable energy 

sources, NRCS will integrate 

energy-related resource 

concerns into our planning 

and technical consultation 

assistance, technology 

development, and financial 

assistance programs.

We will cooperate in the 

development of information 

and technology to promote 

energy management. Actions 

include:

 

Work collaboratively 

with appropriate Federal, 

•

Tribal, Alaskan Native, 

State agencies, and nongovernmental organizations 

to develop a comprehensive 

energy audit standard;

Develop technical tools and 

provide training to staff and 

private sector providers to 

enhance agriculture’s ability 

to evaluate and reduce 

energy consumption; 

Partner with the private 

sector to encourage 

development of energyefficient farm equipment; 

Design and develop tools 

for farmers and ranchers 

to assess their direct and 

indirect energy use;

•

•

•

Increase testing of plants 

that show promise for 

biofuel production; and

Explore the integration 

of energy management 

strategies with ongoing 

NRCS environmental 

outcomes projects. 

We will integrate energy 

concerns into our planning 

assistance and programs, 

providing information to: 

Encourage producers to 

use plants better suited 

to local soil and climate 

conditions to reduce energy 

inputs; and

Encourage livestock 

producers to adopt foragebased systems to extend 

and maximize the grazing 

season. 

We will encourage increased 

use of biofuels by: 

Encouraging on-farm 

production;

Providing incentives for 

expanding on-farm energy 

conservation and renewable 

energy production and use;

Developing and executing 

an energy management 

communication campaign; 

and

Increasing biofuel use by 

the NRCS fleet.

•

•

•

•

•

•

•

Source: U.S. Department of Energy, Oak Ridge Laboratory, 1999 •

Pacific Coast

2.7 Rocky Mountains

0 North Central

222.7

South Central

87.6

Total = 392 million acres

Northeast

45.2

Southeast

33.9

Map 5. Land Capable of Producing Energy Crops Without Irrigation (Million Acres).

56 MISSION GOALS
H E A L T H Y E N V I R O N M E N T

Manure management for methane recovery 

is an on-farm source of biogas fuel.

MISSION GOALS 57

H E A L T H Y E N V I R O N M E N T
Venture Goals: 

Working Farm and Ranch Lands 

P R O D U C T I V E L A N D S

60 MISSION GOALS

Urban sprawl.
H E A L T H Y E N V I R O N M E N T

Introduction 

Conversion of cropland, grazing land, and forest 

land to other uses can fragment landscapes and 

diminish their values for agriculture and forest 

uses, water management, wildlife habitat, and 

aesthetic purposes. The rate of development 

accelerated from 1.4 million acres per year 

between 1982 and 1992 to 2.2 million acres per 

year between 1992 and 2001. 

As predominantly agricultural watersheds shift 

toward mixed urban and suburban landscapes, 

land values escalate and agricultural viability 

declines. Communities can use comprehensive 

watershed planning to retain a viable 

agricultural presence, rural quality of 

life, and quality of the environment, 

while making room for needed 

development and other economic uses 

of the resource base.

Outcome: Connected landscapes 

sustain a viable agricultural sector 

and natural resource quality. 

Objective: By 2010, 70 percent of 

farms and ranches protected under 

easements will remain in active 

agriculture.

Baseline: To be determined. A study 

is currently being conducted by the 

University of Nebraska to ascertain 

how many farms and ranches 

enrolled in the Farm and Ranch 

Lands Protection Program remain 

in active agriculture. 

Grasslands and subdivisions form distinct contrasts on the 

Colorado Front Range, Larimer County, Colorado.

MISSION GOALS 61
P R O D U C T I V E L A N D S

Situation

Urban areas are continuing 

to grow into the countryside, 

and more isolated large-lot 

housing development is 

occurring beyond the urban 

fringe. Between 1960 and 

1990, metropolitan-area 

population grew by 50 

percent while the acreage of 

developed land increased 100 

percent. An estimated onefifth of the Nation’s 250 million 

acres of prime agricultural 

land is considered at risk for 

development because of its 

proximity to the Nation’s 100 

largest cities. The National 

Home Builders Association 

forecasts that 1.3 to 1.5 million 

new homes will be built 

each year through 2010. If 

current development patterns 

continue, these will be larger 

homes, on larger lots, farther 

from central cities. Land in 

all agricultural uses is being 

affected by development 

pressure.

Forest Land 

Private forest land is the major 

source of newly developed 

acres. If fragmentation, the 

dividing of land into smaller 

ownerships, continues at the 

current rate of change, 38 

percent of forest land will be in 

parcels of less than 100 acres 

by 2010. Such small parcels 

are less likely to be managed 

for wood or fiber production 

or to provide the multiple 

benefits associated with forest 

systems. Unmanaged forests 

can become overstocked, 

increasing their susceptibility 

to pests, disease, and fires. 

Epidemics of bark beetles in 

the South and West and the 

increase in frequency and 

intensity of major wildfires in 

recent years are associated 

with overstocked forests. 

Cropland

Cropland that is converted to 

developed uses is dominantly 

prime farmland—the land 

that is best suited to growing 

crops. The conversion of prime 

farmland results in the loss of 

productive soil resources as 

well as reduced production 

of some high-value or 

specialty crops. In California’s 

Central Valley, 15,000 acres 

of farmland are developed 

each year. The Central Valley 

currently produces 10 percent 

of the Nation’s farm output on 

less than one percent of the 

Nation’s farmland. 

Grazing Lands

Fragmentation of rangeland 

is an increasing concern 

in many areas of the West. 

Unlike the East, the pattern 

of land conversion in the 

West is divisions of large 

parcels into relatively small 

“ranchettes” rather than into 

concentrated development. 

Although the land is still in 

an agriculturally use, these 

small units are generally not 

managed as working ranches. 

The corresponding absence of 

adequate range management 

allows invasive species to 

become well-established and 

to threaten the health of wide 

areas of the landscape. Such 

development may also hinder 

the ability of wildlife to move 

freely within their habitat. 

Agricultural Viability 

Urban sprawl and 

fragmentation of the 

landscape also affect the 

viability of agricultural 

operations. Conflicts often 

develop between agricultural 

operators and new residents 

that make production more 

difficult or more expensive. 

Increasing land prices, taxes, 

and regulations may cause 

operators to sell their land 

for development and leave 

farming or move to a less 

developed area to begin 

again. As the concentration 

of agriculture operations 

declines, the viability of 

remaining operations is 

further challenged.

62 MISSION GOALS
H E A L T H Y E N V I R O N M E N T

Key Tasks

Working in partnership with 

many different entities, NRCS 

has helped communities to 

make wise land management 

decisions for decades. Our 

current conservation efforts 

will be strengthened by 

strategic emphases to assist 

communities in developing 

and implementing land management strategies that meet 

their objectives and sustain or 

improve environmental quality. 

Current Conservation 

Management 

NRCS provides information 

and analytical tools to 

governments, communities, 

and other entities that are 

responsible for comprehensive 

land use planning so they can 

balance development and 

other land uses to achieve an 

appropriate mix that supports 

environmental quality, 

economic opportunity, and 

social desires. The tools we 

provide include: 

Planning tools, such as landscape suitability modeling 

and science-based resource 

data, that enable local communities to plan for development, identify agriculturally 

and ecologically significant 

areas, zone for agriculture, 

and identify land most suited 

for development; and

•

Source: NRCS, National Resources Inventory, 2001

Figure 8. Sources of Newly Developed Land, Annual Acres by Time Period.

Thousand Acres

Cropland

Grazing Land

Forest Land

All Other Land Uses

0

3000

6000

9000

12000

15000

1982 to 1992 1992 to 1997 1997 to 2001

Accurate and up-to-date 

soils data and other natural resource data that can 

be used by local planning 

bodies to ensure natural 

resources are protected. 

We also partner with State and 

local governments, Tribes, and 

non-governmental entities 

to purchase development 

rights, helping communities 

preserve priority farm and 

forest land in long-term 

and permanent easements. 

State Technical Committees, 

local USDA workgroups, and 

Resource Conservation and 

Development Councils assist 

in coordinating local, State, 

regional, and Tribal efforts to 

protect farm, ranch, and forest 

lands from fragmentation.

We help operators keep farms 

viable through stewardship 

incentive payments and by 

providing information about 

alternative or value-added 

enterprises, such as niche 

crops or agri-tourism, that may 

improve farm economics. We 

also provide cost-share for 

tree establishment, forest site 

preparation, and timber stand 

improvement to help landowners sustainably manage 

their forested acreage.

•

MISSION GOALS 63
P R O D U C T I V E L A N D S

64 MISSION GOALS

Strategic Emphases

To accelerate progress toward watersheds 

with well-balanced land uses that meet 

communities’ natural resource, economic, 

and social objectives, NRCS will:

Increase our investment in developing 

resource information and area-wide 

planning tools that can assist local 

communities as they comprehensively 

plan for growth and zone for agricultural 

protection;

Encourage development of information 

resources for local governments, 

communities, natural resource managers, 

and operators on estate planning and 

facilitating land transfer to agricultural 

buyers. The information will encourage 

retention of important lands in agriculture 

and forest uses;

Encourage development of a national 

information warehouse to make 

geographic data available on existing 

easements, across participating 

government and non-governmental 

entities, in order to enable protection 

of contiguous blocks of agricultural and 

forest lands;

Expand technical and educational tools to 

help alternative agricultural enterprises, 

such as agri-tourism and niche markets, 

maintain economic viability; and

Actively manage conservation easements 

under the Agency’s administrative control 

in order to maintain agricultural viability 

and natural resource protection.

•••••

Information Enables 

Cooperative Action

In cooperation with the 

National Agricultural Library 

and American Farmland 

Trust, NRCS provides funding 

to support the Farmland 

Information Center (FIC). 

FIC is a clearinghouse for 

information about farmland 

protection and stewardship. 

It provides an online collection 

of laws, literature, and techni-

cal resources to assist agencies, 

academics, non-governmental 

organizations, and concerned 

citizens in making informed 

land use decisions and policies. 
H E A L T H Y E N V I R O N M E N T

MISSION GOALS 65

Contour stripcropping prevents soil erosion.

Management Initiatives
P R O D U C T I V E L A N D S

NRCS employees ensure 

that every customer 

and every colleague is 

treated with fairness, equity, 

and respect. We strive for a 

workplace and society that 

are inclusive and respectful of 

differences.

Management Goal: 

Establish an equal opportunity standard for excellence 

through a highly skilled 

workforce that is diverse at all 

levels and ensures a commitment of equal access to NRCS 

programs and services.

Equal Employment 

Opportunity

It is the policy of NRCS to 

achieve a culturally diverse 

workforce that provides 

services to a varied and changing population. A diverse 

workforce is one that reflects 

Department of Labor statistics 

on the makeup of the Nation’s 

labor force and that values 

differences such as cultural 

background, race, color, age, 

sex, national origin, disability, 

religion, or marital status at 

all levels of the organization. 

Valuing diversity means 

Management Initiatives:

recognizing that individuals 

are different and that diversity 

is an advantage if nurtured 

and well managed, and it 

means changing behavior 

and systems to nurture the 

richness of differences.

In order to achieve a diverse 

workforce, NRCS will:

Create—through 

awareness training, 

career developmental 

opportunities, and 

managerial commitment—

the workplace environment 

that makes NRCS the 

employer of choice for the 

best-qualified individuals of 

all backgrounds;

Create a working 

environment that is free of 

discrimination and sexual 

harassment and that is 

accessible to individuals 

with disabilities; and

Recognize, appreciate, and 

value diversity, thereby 

demonstrating trust, 

respect, and concern for the 

welfare of all people within 

the Agency.

•

•

•

Performance Expectation: 

The Agency workforce will 

closely resemble the diversity 

of the Nation’s labor force. 

Fair and Equitable 

Service Delivery

NRCS is committed to 

providing equitable service 

to all customers, regardless 

of race, color, national origin, 

gender, religion, age, disability, 

sexual orientation, marital or 

family status, political beliefs, 

parental status, or protected 

genetic information. 

To ensure fair and equitable 

program delivery, NRCS will:

Conduct a continuous 

review of all Agency 

activities, including program 

requirements, to ensure 

that technical assistance 

and financial assistance are 

provided equitably;

Recognize the multilingual 

and multicultural needs of 

our customers;

Ensure that Agency 

information, tools, and 

technologies are in formats 

that can be used effectively 

•

•

•

68 MANAGEMENT INITIATIVES

Ensuring Civil Rights
H E A L T H Y E N V I R O N M E N T

by minority, underserved, 

and nontraditional groups;

 Produce communications 

materials, such as 

multilingual publications, 

specifically targeted to 

reach underserved groups;

Strengthen ties with 

academic institutions 

and community-based 

organizations that serve 

minorities to develop 

and deliver services 

to meet the needs of 

minority, underserved, and 

nontraditional customers;

Cooperate with Tribal 

governments to implement 

strategies for delivering 

assistance that meets their 

needs; 

Develop innovative 

strategies using existing 

authorities to reach 

historically underserved 

landowners and land 

managers, and seek new 

authorities to broaden and 

strengthen the conservation 

partnership; and 

Conduct active outreach 

programs to inform all 

underserved groups of the 

availability of services.

Performance Expectation: 

Every NRCS office that 

provides services to customers 

will strive to provide parity in 

service delivery.

•

•

•

•

•

Good management 

of internal business 

processes and Agency 

resources is essential to 

efficient program operations 

that provide high-quality 

customer service and make 

effective use of the public 

investment. NRCS is committed to fully implementing the 

management strategies that 

the President’s Management 

Agenda has identified as key 

to improving the effectiveness 

and accountability of the 

Federal government as a 

whole. We have developed 

detailed long-range action 

plans to meet the criteria for 

excellence for each component of the President’s agenda. 

Major tasks in these plans 

are included in the Agency’s 

annual business plan and in 

annual operating plans at 

all levels. Implementation of 

these tasks will enable us to:

Maintain an efficient, 

high-performing, diverse 

workforce, aligned with 

mission priorities and 

working cooperatively with 

our partners and the private 

sector;

•

Improving Internal Management 

MANAGEMENT INITIATIVES 69

Make effective use of 

electronic information 

management systems to 

enable: 

Employees to provide 

better service to 

customers;

Customers to easily 

access our information 

and use our planning 

tools to improve their 

management of soil and 

water resources; and

Customers and 

stakeholders to 

understand Agency 

processes and the 

rationale for Agency 

decisions. 

Improve financial 

management and avoid 

improper payments;

Link budget decisions 

more closely with program 

performance to achieve 

greater conservation. 

•

•

•

•

•

•
P R O D U C T I V E L A N D S

Human Capital

NRCS employees work 

with the employees 

of Federal, State, 

local, and Tribal agencies 

and organizations, as well 

as volunteers, non-profit 

organizations, and private 

sector technical service 

providers to deliver and carry 

out the Nation’s conservation 

agenda on private land. At 

the field level, the workforce 

of the conservation delivery 

system includes as many nonFederal as Federal employees, 

although the Federal segment 

includes a higher proportion 

of technical specialists. 

NRCS’ primary assets are 

the knowledge, skills, and 

dedication of our employees. 

Our success depends upon our 

people’s technical expertise 

and ability to work effectively 

with an increasingly diverse 

clientele. The core NRCS 

technical workforce must 

continue to possess technical 

expertise in a wide range 

of disciplines. Our need for 

leadership and management 

skills will increase as we 

work to bring a wider range 

of interests and partners 

together in science-based, 

interdisciplinary efforts to 

get conservation on the 

land. Maintaining excellence 

in the range of needed 

disciplines may be difficult in 

the next few years because 

a significant percentage of 

the NRCS workforce will be 

eligible to retire in 5 years. 

Sustaining a workforce that 

can achieve our mission will 

require continuous, aggressive 

attention to a multi-faceted 

human capital plan.

Management Goal:

Manage our human capital 

strategically to ensure the 

right skills in the right locations to deliver high-quality 

products and services.

To ensure our workforce is in 

the right locations and has the 

right skills, NRCS will:

Provide training and development opportunities for 

current and new employees to maintain technical 

excellence in an environment of rapidly expanding 

knowledge and technology. 

Actions will include:

Requiring new employees 

to attend NRCS Boot 

Camp in their first year;

Requiring advanced 

management training for 

middle managers;

•

•

•

Establishing annual 

multi-level assessments to 

determine training needs 

at all levels of the Agency;

Reduce the time it takes to 

hire new employees;

Use targeted recruitment 

strategies and specialized 

hiring initiatives to attract 

qualified employees 

to address skills gaps 

identified in the Human 

Capital Plan;

Develop and implement 

plans for leadership 

recruitment, development, 

and succession that 

include specific objectives, 

actions, and timetables;

Develop a strategic 

workforce planning 

model for managers to 

assess and analyze their 

workforce, and ensure that 

managers have flexibility 

to organize operations for 

optimal service delivery.

Use programs, such as the 

Agricultural Conservation 

Enrollees/Seniors (ACES) 

project, to obtain the 

services of experienced 

workers on a temporary 

basis. 

Strengthen the Earth 

Team volunteer program 

to expand NRCS services 

by using volunteer time, 

talent, and energy to help 

meet Agency needs.

•

•

•

•

•

•

•

70 MANAGEMENT INITIATIVES
H E A L T H Y E N V I R O N M E N T

As the Nation’s conservation 

agenda continues to become 

more complex, the need for 

technical information and 

advice will increasingly exceed 

the capacity of the Federal 

workforce to respond in a 

timely manner. The 2002 Farm 

Bill provided a solution to this 

problem by reauthorizing the 

use of non-Federal entities to 

assist participants in USDA 

conservation programs. NRCS 

has established processes to 

certify individual technical 

service providers (TSPs) and 

to enter into agreements 

with governmental and 

non-governmental entities 

to provide services. Over 

time, as the market develops, 

private sector technical 

service providers will play an 

increasing role in meeting the 

growing demand for conservation services. To facilitate 

partnerships between NRCS, 

agricultural producers, and 

technical service providers, 

NRCS will:

Work with TSPs to enhance 

technical competencies;

Evaluate the economic, 

technical, and customer 

service effectiveness of 

TSPs; and

Ensure the TSP certification 

process complies with the 

conservation planning certification process and other 

verifiable processes. 

•

•

•

Management Goal:

Make effective use of Internetbased technology to provide 

customer-focused service.

Many NRCS customers 

are increasing their use 

of the Internet to find 

information, conduct 

business, and communicate 

with others. In addition to 

continuing traditional lines 

of communication, NRCS 

is committed to providing 

services electronically 

to those customers who 

have the capability to use 

electronic communications 

and information management 

technology. Making 

more services available 

electronically will improve 

efficiency and performance by 

allowing customers, partners, 

and employees to reduce 

travel time, readily share data, 

and complete transactions 

more quickly. 

NRCS will improve and 

enhance its electronic delivery 

system in three ways. We will: 

Soils data is available 

electronically.

MANAGEMENT INITIATIVES 71

Electronic Government
P R O D U C T I V E L A N D S

Expand self-service options 

available to customers by 

creating self-assessment 

eligibility tools for programs; 

developing web-based 

common application forms 

for programs; designing 

and making available a 

“Conservation Program SelfService Tool” that enables 

producers to create their 

own conservation plans 

and select conservation 

programs that help them 

meet their objectives; 

improving e-Authentication 

to ensure external 

customers a secure 

environment; and enabling 

the public to comment 

easily during the rulemaking 

process;

Foster sharing of data with 

customers and partners 

by enabling easy access to 

selected data, including 

soils, climate, and hydrology 

data, conservation practice 

information, maps, and 

other related analysis 

products; and

Improve internal business 

processes by offering our 

employees electronic 

learning courses, 

implementing a nationwide 

automated system to 

expedite hiring processes, 

and improving and 

developing electronic field 

office business tools.

•

•

•

The public investment 

in conservation 

through programs 

administered by NRCS has 

increased substantially. It is 

the responsibility of NRCS to 

ensure that taxpayer dollars 

are spent wisely and efficiently 

and are protected from fraud 

and misuse. The President’s 

Improving Financial 

Performance Initiative centers 

on improving the quality and 

timeliness of Federal financial 

information.

In order to strengthen 

financial management 

controls, NRCS is instituting 

a permanent framework for 

assessing risk, measuring 

payment accuracy, 

and initiating financial 

management improvements.

To ensure that NRCS is issuing 

accurate and timely financial 

information and minimizing 

improper payments, the 

Agency will:

Migrate all financial 

programs to automated, 

centralized contract and 

payment systems, where 

practicable;

•

Accelerate accurate end-ofyear reporting;

Require comparative 

financial reporting;

Improve timeliness of 

payments by expanding the 

use of Web-based reporting 

technologies;

Introduce additional 

controls to ensure program 

eligibility requirements are 

met; and

Conduct internal reviews 

to reduce error and evaluate financial management 

procedures.

•

•

•

•

•

72 MANAGEMENT INITIATIVES

Financial Performance
H E A L T H Y E N V I R O N M E N T

The Budget and 

Performance Integration 

Initiative of the 

President’s Management 

Agenda requires that agencies 

use performance information 

to manage activities and 

programs, justify requests 

for funds on the basis of 

the performance expected, 

and continually improve the 

effi ciency of their operations 

and programs. NRCS has 

developed an integrated 

accountability system 

that tracks fi nancial and 

performance data by program. 

Data from the integrated 

accountability system allows 

managers at all levels of the 

organization to monitor 

program performance, 

costs, and obligations. This 

system enables integration of 

performance data with data 

on the full cost of programs 

to support budget requests 

and allocation decisions, 

and measures progress 

on the Agency’s strategic, 

performance, and business 

plans. This system received the 

American Society for Public 

Administration’s prestigious 

Organizational Leadership 

Award in May 2003 and has 

been featured at over a dozen 

performance management 

forums around the Nation. 

To continue to strengthen 

the integration of budget and 

performance, NRCS will: 

Periodically assess resource 

conservation needs across 

the country;

Develop and use effi ciency 

measures to improve eff ectiveness for each conservation program;

Develop and use common 

performance measures 

•

•

•

to facilitate program 

streamlining and ensure 

unifi ed outcomes are 

achieved across program 

boundaries, where 

appropriate;

Utilize data on performance, 

effi ciency, and conservation 

needs in program allocation 

formulas to achieve greater 

conservation;

Conduct internal oversight 

reviews to evaluate program 

eff ectiveness and effi ciency; 

and

Ensure that the multi-level 

performance appraisal 

system for individual 

performance is linked to 

the Agency’s strategic plan 

for all organizational units 

and at all organizational 

levels; that employees’ 

performance awards link to 

the Agency’s strategic plan 

goals; and that supervisors 

are accountable for 

performance management 

of their employees.

•

•

•

MANAGEMENT INITIATIVES 73

Budget and Performance Integration
P R O D U C T I V E L A N D S

74 APPENDICES

priorities identified by State 

conservationists through 

the performance planning 

process. They also reflect the 

level of resources available to 

the Agency in the appropriation signed by the President. 

Performance targets may be 

reached through different 

approaches in different parts 

of the Nation. In each State, 

Agency managers craft an 

approach to most efficiently 

work toward national and 

local goals.

Explanation of Terms:

Mission Goals identify the 

benefits that the Agency was 

established to help people 

achieve and maintain. Mission 

Goals are characterized as 

Foundation Goals or Venture 

Goals. Foundation Goals 

address the land uses and 

resource concerns that have 

been the NRCS’ primary focus 

throughout our existence 

and continue to be the 

foundation of a healthy 

landscape. Venture Goals 

address resource issues that 

are growing in importance as 

a result of current economic 

and demographic trends.

Outcomes provide an 

expanded definition of 

the resource condition 

identified by the concise 

goal statements. These 

definitions of ideal conditions 

are translated into feasible 

milestones as objectives to be 

achieved within an identified 

time frame. 

Objectives include a 

performance measure, a 

quantified target to be 

achieved by an identified date, 

and a baseline against which 

progress can be monitored. 

The performance measures 

used in objectives are 

Performance goals provide the 

link between the long-term 

goals established through 

strategic planning and the 

day-to-day activities of Agency 

personnel. 

The objectives in this plan 

form the basis for developing 

annual performance goals 

over the next 5 years. 

Annual goals are indicators of 

progress that relate directly 

to a Mission Goal, but can 

be measured annually. The 

annual goals help guide the 

allocation of staff and financial 

resources. 

In NRCS, performance goals 

are developed at the national 

and state levels. National 

performance goals are developed as part of the process 

of formulating the President’s 

Budget. These goals provide 

the framework for the development of state performance 

goals. State goals reflect local 

Appendix 1.

Linking Strategic Goals to Annual Program Performance

Appendices:
H E A L T H Y E N V I R O N M E N T

APPENDICES 75

considered the best current 

measures of progress on 

issues that are primary 

purposes of major programs. 

Measures were identified by 

program managers, based on 

the authorizing legislation for 

separate programs. 

Measures are those for which 

baseline data are available 

and methodology exists for 

determining performance. 

For some natural resource 

outcomes, work is being 

conducted to develop performance measures that better 

communicate the results of 

conservation efforts. As data 

become available, future 

planning cycles will utilize 

those measures in defining 

Agency objectives. 

The Agency targets shown in 

this plan are the aggregate of 

program-specific long-range 

targets projected by national 

program managers on the 

basis of current program 

authorities, funding levels, and 

workload information. 

For some Venture Goals, 

specific objectives have not 

been set because data are 

currently not available to 

define a baseline or to project 

and then monitor the effects 

of applying conservation 

practices. Nevertheless, these 

issues are important and will 

be affected by the Agency’s 

activities in the period covered 

by this plan. 

Key Conservation 

Practices for Reaching 

the Objective

Progress toward objectives 

is the result of conservation 

applied on the land by 

farmers, ranchers, and 

other land managers. NRCS 

employees help individuals 

and communities assess their 

resources, develop plans for 

management actions that 

will protect and maintain 

resource condition, and 

apply treatment according to 

the plan. The table lists the 

major conservation practices 

that will contribute most 

to achieving the objective. 

In addition to the practices 

shown, additional practices 

are needed on many sites 

to address site-specific 

conditions and meet the 

land manager’s individual 

objectives.

For some Venture Goals, 

specific objective targets have 

not been established. Agency 

programs and conservation 

practices, however, do 

make contributions toward 

achieving the desired 

outcome. Those “Associated 

Conservation Practices” have 

been identified. 

Conservation practices 

typically affect multiple 

resources. Therefore, some 

practices are shown as helping 

to meet several objectives.

Annual Performance 

Measures 

Objectives are the foundation 

for annual performance goals. 

Most annual performance 

measures are plans developed 

and practices applied by 

land managers with NRCS 

assistance. For inventory and 

technology development 

programs, annual measures 

are program outputs. 

Programs

Annual performance targets 

are set for each measure for 

each appropriate program. 

Annual targets are based 

on the staff time required to 

complete the work and the 

funds available to support 

each program activity. 

For some objectives, programs 

other than those shown in the 

table will have some effect on 

meeting the objective. 
P R O D U C T I V E L A N D S

Foundation Goals

Mission Goal Outcome Objective Key 

Conservation 

Practices for 

Reaching the 

Objective

Annual 

Performance 

Measures

Programs

High Quality, 

Productive Soils

Soil Quality: 

The quality 

of intensively 

used soils is 

maintained 

or enhanced 

to enable 

sustained 

production of 

a safe, healthy 

and abundant 

food supply.

By 2010, 

farmers will 

manage 70 

percent of 

cropland under 

systems that 

maintain or 

improve soil 

condition and 

increase soil 

carbon.

Residue 

management 

Conservation 

crop rotations 

Terracing

Strip cropping

Critical area 

plantings

Cover crops

Conservation 

plans developed 

on cropland; 

number

CO (CTA)

Reduction in 

the acreage of 

cropland soils 

damaged by 

erosion; acres

CO (CTA), EQIP, 

AMA, CRP

Soil erosion 

reduced; tons

CO (CTA), EQIP, 

AMA, FRPP

Soil surveys 

mapped or 

updated; acres

CO (Soil Survey)

New plant 

materials released; 

number

Foundation seed 

stock maintained; 

number

CO (Conservation 

Plant Materials)

Cropland enrolled 

in CSP with 

enhancements 

applied to 

increase soil 

quality; acres

CSP

76 APPENDICES
H E A L T H Y E N V I R O N M E N T

Mission Goal Outcome Objective Key 

Conservation 

Practices for 

Reaching the 

Objective

Annual 

Performance 

Measures

Programs

Clean and 

Abundant 

Water

Water Quality: 

The quality 

of surface 

waters and 

groundwater 

is restored and 

maintained to 

protect human 

health, support 

a healthy 

environment, 

and encourage 

a productive 

landscape.

By 2010, 

agricultural 

producers will 

reduce potential 

delivery of 

sediment and 

nutrients from 

their operations:

• potential 

delivery of 

sediment will 

be reduced 

by 70 million 

tons.

• potential 

delivery of 

nitrogen will 

be reduced 

by 375,000 

tons.

• potential 

delivery of 

phosphorus 

will be 

reduced by 

70,000 tons.

Buffer practices

Nutrient 

management

Comprehensive 

Nutrient 

Management 

Plan (CNMP)

Grade 

stabilization 

structures

Wetland 

restoration

CNMP written; 

number

CO (CTA), EQIP

CNMP applied; 

number

CO (CTA), EQIP

Land with 

nutrient 

management 

enhancements 

applied that 

exceed quality 

criteria; acres

CSP

Watershed 

or area-wide 

conservation 

plans 

developed for 

water or air 

quality; number

CO (CTA), PL-06, 

RC&D

Long-term 

contracts 

completed 

during the 

fiscal year for 

the purpose of 

water quality 

improvement; 

number

PL-566, PL-534

Wetlands 

created, 

enhanced and 

restored; acres

WRP

APPENDICES 77
P R O D U C T I V E L A N D S

78 APPENDICES

Mission Goal Outcome Objective Key 

Conservation 

Practices for 

Reaching the 

Objective

Annual 

Performance 

Measures

Programs

Clean and 

Abundant 

Water (cont.)

Water Quantity: 

Water is 

conserved 

and protected 

to ensure an 

abundant and 

reliable supply 

for the Nation.

By 2010, 

conserve 8 

million acrefeet of water.

Irrigation water 

management

Irrigation 

systems 

Irrigation water 

conveyance

Structure for 

water control

Irrigation 

efficiency 

improved; acrefeet

CO (CTA), EQIP, 

AMA

Water supply 

forecasts issued; 

number

CO (Snow Survey)

Watershed 

or area-wide 

resource plans, 

studies or 

inventories 

for water 

conservation or 

water supply; 

number

CO (CTA), PL-06

Multi-purpose 

water supply 

reservoirs 

installed; 

number

PL-566, PL-534

Watershed 

or area-wide 

resource plans, 

studies or 

inventories 

for flood 

prevention 

or mitigation; 

number

CO (CTA), PL-06

Flood 

prevention 

or mitigation 

measures 

installed, 

including 

structures, 

easements, and 

other measures; 

number

PL-566, PL-534
H E A L T H Y E N V I R O N M E N T

APPENDICES 79

Mission Goal Outcome Objective Key 

Conservation 

Practices for 

Reaching the 

Objective

Annual 

Performance 

Measures

Programs

Clean and 

Abundant 

Water (cont.)

Unsafe dams 

rehabilitated or 

removed; number

Watershed Rehab

Healthy Plant 

and Animal 

Communities

Grassland, 

Rangeland, 

and Forest 

Ecosystems: 

Grassland, 

rangeland, 

and forest 

ecosystems 

are productive, 

diverse, and 

resilient.

By 2010, 

farmers, 

ranchers, and 

private nonindustrial 

forest owners 

will apply 

management 

that will 

maintain 

or improve 

long-term 

vegetative 

condition on 

150 million 

acres of 

grazing and 

forest land.

Prescribed 

grazing

Integrated pest 

management

Brush 

management

Prescribed 

burning

Use exclusion

Conservation plans 

written for grazing 

land; acres

CO (CTA)

Grazing land with 

conservation 

applied to treat 

the resource base; 

acres

CO (CTA), EQIP

Land with grazing 

management 

enhancements 

applied that 

exceed quality 

criteria; acres

CSP

Non-federal land 

managed for the 

protection and 

enhancement of 

habitat for species 

with declining 

populations; acres

WHIP

Grazing land 

protected by a 

conservation 

easement; 

cumulative acres

GRP

New plant 

materials released 

to commercial 

growers; number

CO (Conservation

Plant Materials)
P R O D U C T I V E L A N D S

80 APPENDICES

Mission Goal Outcome Objective Key 

Conservation 

Practices for 

Reaching the 

Objective

Annual 

Performance 

Measures

Programs

Healthy Plant 

and Animal 

Communities 

(cont.)

Fish and 

Wildlife Habitat: 

Working lands 

and waters 

provide habitat 

for diverse and 

healthy wildlife, 

aquatic species, 

and plant 

communities.

By 2010, an 

additional 9 

million acres 

of essential 

habitat will be 

improved and 

managed to 

benefit at-risk 

and declining 

species.

Restoration and 

management 

of declining 

habitats

Stream corridor 

restoration

Food plots

Wetland 

wildlife habitat 

management

Upland 

wildlife habitat 

management

Non-federal 

land treated for 

fish and wildlife 

habitat; acres

CO (CTA), CRP, 

RC&D, WHIP

Non-federal 

land managed 

for the 

protection and 

enhancement 

of habitat for 

species with 

declining 

populations; 

acres 

CO (CTA), EQIP, 

WHIP, GRP

Wetlands: 

Wetlands 

provide quality 

habitat for 

migratory 

birds and other 

wildlife, protect 

water quality, 

and reduce 

flood damages.

By 2010, 

resource 

managers will 

create, restore, 

or enhance 1.5 

million acres 

of wetlands on 

non-Federal 

lands.

Wetland 

restoration

Wetland 

creation

Wetland 

enhancement

Wetlands 

created, 

restored or 

enhanced; acres

CO (CTA), WRP, 

CRP
H E A L T H Y E N V I R O N M E N T

Venture Goals

Mission 

Goal

Outcome Objective Associated 

Conservation 

Practices 

Annual 

Performance 

Measures

Programs

Clean Air Air Quality: 

Agriculture 

makes a positive 

contribution to 

local air quality 

and the Nation’s 

efforts to sequester 

carbon.

To be established. The 

objective will 

be measured 

by tons 

of carbon 

sequestered.

Atmospheric 

resource quality 

management

Windbreak 

establishment

Cover crops

Residue 

management

Irrigation 

management

Mulching

Conservation 

crop rotations 

Pastureland 

Management

Tree plantings

Watershed or 

area-wide plans 

develolped for air 

quality; number

CO (CTA), 

PL-06, RC&D

EQIP, CSP, 

WRP (annual 

measures 

to be 

established)

An Adequate 

Energy 

Supply

Energy: Agricultural 

activities conserve 

energy, and 

agricultural lands 

are a source of 

environmentally 

sustainable 

biofuels and 

renewable energy.

To be established. 

The objective 

will be 

measured 

by BTUs 

conserved.

 

Residue 

management

Comprehensive 

nutrient 

management

EQIP, CSP

Working 

Farm and 

Ranch Lands

Connected 

landscapes sustain 

a viable agricultural 

sector and natural 

resource quality.

By 2010, 70 

percent of 

farms and 

ranches 

protected 

under 

easements 

will remain 

in active 

agriculture.

Farmland and 

grazing land 

protected by 

conservation 

easements; acres

FRPP, GRP

Prime, unique, and 

important farmland protected by 

conservation easements from conversion to non-agricultural uses; acres

FRPP

APPENDICES 81
P R O D U C T I V E L A N D S

Appendix 2. 

Program Evaluations

Periodic evaluations of 

the implementation and 

accomplishments of individual 

conservation programs 

administered by NRCS are 

a critical element of overall 

performance measurement. 

Findings of periodic and 

annual evaluations are used 

to refine Agency objectives 

and guide Agency strategic 

planning. A variety of program 

reviews and evaluations are 

routinely conducted within 

NRCS:

Program managers conduct 

programmatic reviews 

to assess the propriety of 

program implementation at 

the field level.

The Oversight and 

Evaluation Staff conducts 

independent reviews of 

programs to ascertain 

compliance with existing 

•

•

laws, executive orders, 

regulations, policies, 

and procedures. Review 

types include surveys, 

comprehensive reviews, 

and quick response reviews, 

depending on the issue, 

scope, and depth of review 

needed.

State offices are responsible 

for compliance reviews of 

the individual programmatic 

activities and for operational 

reviews within their 

jurisdictions.

Since 2003, reviews have 

been conducted of program 

management issues for 

the Agency’s financial 

assistance programs to 

assess management controls 

and ensure efficiency of 

operations and adherence to 

policy and rules. 

•

A “Logic Model” analysis of 

each Agency program has 

been conducted to clarify the 

primary outcomes authorized 

for the program and establish 

annual, long-term, and 

efficiency measures for 

evaluating the performance of 

the program. The performance 

measures and targets 

developed through the Logic 

Model process provided the 

basis for the Objectives in this 

strategic plan.

The Logic Model process was 

coordinated with reviews 

conducted with the Office 

of Management and Budget 

using the Program Assessment 

Rating Tool (PART). 

During the period covered by 

this strategic plan, NRCS will 

conduct the following major 

evaluations of its programs. 

82 APPENDICES
H E A L T H Y E N V I R O N M E N T

Program Evaluation

Program Evaluations General Scope End date

Program Evaluation of the Wildlife 

Habitat Incentives Program

Identify opportunities for improvements in achieving 

program purpose.

2006

Program Evaluation of Water 

Resources Programs

Determine whether water resources programs provide 

duplicative services, are streamlined for efficiency, and are 

as effective as they can be in meeting objectives.

2006

Activity-Based Costing Assessment Develop estimates of the time, by technical discipline, 

required at all levels of the Agency to produce each of the 

major products and services of Agency programs. 

2006

Assessment of the environmental 

benefits of Farm Bill Conservation 

Programs

Agency effort to develop capacity to report in quantitative 

terms the annual soil quality improvements, water quality 

improvements, and carbon sequestration gains resulting 

from application of conservation under the Farm Bill 

programs.

2008

Environmental Quality Incentives 

Program, Resources Conservation 

and Development Program, 

Wetlands Reserve Program, Farm 

and Ranch Lands Protection 

Program, National Resources 

Inventory, Soil Survey Program, 

Snow Survey and Water Supply 

Forecasting Program, and Plant 

Materials Program

Conduct internal program evaluations of all Agency 

programs to assess how effectively each contributes to 

achieving the desired outcomes and to estimate benefits 

achieved, cost effectiveness, and extent to which customer 

needs and congressional intent are met.

In addition, reviews using OMB’s PART tool will be 

conducted in cooperation with OMB.

2007- 

2010

APPENDICES 83
P R O D U C T I V E L A N D S

The goals, objectives, and 

strategies identified in this 

strategic plan are all affected 

by factors driving change in 

society. These driving forces—

fundamental changes in family 

structure and the workforce, 

globalization of markets 

and culture, catastrophic 

natural events, advances in 

information and biological 

and other technologies—are 

at work in agriculture as 

well. These factors affect 

NRCS internal processes and 

the resources necessary to 

deliver services. NRCS goals 

and strategies are based 

on analysis of the external 

environment and are designed 

to respond effectively within 

the context of current 

conditions. Nevertheless, 

some factors beyond the 

control of NRCS may strongly 

influence our ability to 

achieve our objectives. The 

most influential of these 

uncontrollable external factors 

include: 

Economic forces affecting 

agriculture. Agricultural 

Appendix 3. 

Key External Factors 

producers now operate in 

a global, technologically 

advanced, rapidly diversifying, 

highly competitive 

business environment that 

is driven by increasingly 

sophisticated consumers. 

Economic forces, such as 

global and domestic market 

fluctuations, competition, 

and economies of scale 

affect profitability, product 

mix decisions, international 

trade agreements, and 

advances in technology. And, 

complexity of operations 

have contributed to shifts in 

the location of production, 

changes in the size of 

production units, and the 

vertical integration of 

livestock production and 

other industries. Ranchers and 

operators of large farms are 

sensitive to the fluctuations 

of global markets. Smaller 

operations generally depend 

on non-farm income to 

maintain viability and are 

therefore closely bound to 

other parts of the economy. 

Regardless of scale, the ability 

of farmers and ranchers to 

implement conservation 

practices or adopt new 

technology is strongly 

affected by their immediate 

economic situation and their 

personal cost/benefit analysis 

of adopting new conservation 

measures. 

Demographic pressures 

driving use of natural 

resources. Global population 

continues to increase. A 

growing and increasingly 

mobile world population 

results in greater ethnic and 

racial diversity in this Nation’s 

communities. The Nation’s 

population is no longer largely 

rural; nearly 80 percent of 

Americans live in urban and 

suburban areas. Population 

is also highly concentrated, 

with nearly 75 percent living 

within 2 hours of a coast. 

Rates of population growth 

in the past few years have 

been high in the West, where 

water supplies are generally 

limited and many ecosystems 

are fragile. Greater population 

densities exert greater 

pressures on the environment, 

84 APPENDICES
H E A L T H Y E N V I R O N M E N T

creating a need for increased 

effort to minimize the 

impacts. Continuing demand 

for new sites for homes and 

industries, transportation, 

and recreation results in 

conversion of agricultural 

land to non-agricultural uses 

and fragmentation of open 

space. As the landscape 

increasingly becomes 

a mosaic of developed 

areas scattered within 

agricultural land, the need 

for conservation increases 

while the options available to 

producers may be constrained. 

Demographic changes 

also have implications for 

the delivery of appropriate 

conservation assistance to an 

increasingly diverse customer 

base that is no longer 

primarily rural. Effectively 

protecting resources and the 

environment in this diverse 

landscape requires the joint 

effort of many entities across 

wide areas of the landscape. 

Activities in parts of an area 

outside USDA influence can 

offset the effects of improved 

management of agricultural 

land, so that the watershed 

or ecosystem as a whole may 

fail to show the expected 

improvement. 

Dependence on external 

sources for conservation 

technology. Advances in 

agricultural production 

technology can have both 

beneficial and adverse effects 

on the environment. Research 

on the possible environmental 

impacts of new technology 

and development of effective 

ways to address existing 

and emerging problems 

is of critical importance. 

NRCS depends heavily on 

conservation technology 

developed by other agencies, 

land grant institutions, and the 

private sector. These entities’ 

continued investment in 

research and development 

for conservation technology 

is essential for the Agency’s 

success. If development of 

new conservation technology does not keep pace with 

changes in environmental 

and agricultural conditions, 

we may be poorly equipped 

to meet emerging needs and 

achieve the conservation 

targets identified in this plan. 

Unusual or prolonged adverse 

environmental conditions. 

Weather extremes always pose 

a challenge to agriculture and 

conservation. Recent episodic 

events such as drought, flooding, hurricanes, and major 

wildfires have caused substantial damage to soil, water, 

wildlife habitat, and related 

natural resources. If these 

events occur on a large scale, 

or are unusually frequent 

during the next five years, it 

may be extremely difficult to 

achieve the natural resource 

improvements envisioned in 

this plan. 

Availability of technical 

expertise to advise natural 

resource managers. The 

public’s financial investment in 

helping producers implement 

conservation was greatly 

expanded by the 2002 Farm 

Bill. In the next few years, we 

anticipate that the marketbased approach will spur private investment to augment 

the public funds invested in 

conservation. Most producers, 

however, need technical 

advice and assistance to plan 

and apply effective conservation. The NRCS workforce did 

not significantly increase as a 

result of the 2002 Farm Bill. As 

directed in the Farm Bill, NRCS 

has established a process to 

certify private sector technical 

service providers (TSPs) to 

help producers plan and 

implement conservation. The 

cadre of TSPs is increasing 

slowly. While producers in 

some parts of the country 

have access to TSPs for at 

least some types of technical 

assistance, the combined 

public and private workforce is 

still not able to provide timely 

assistance in many areas. 

APPENDICES 85
P R O D U C T I V E L A N D S

Strategic Planning in NRCS 

involves all levels of the 

Agency, as well as local, State, 

and Tribal governments, 

government agencies, and 

other partners and stakeholders. It is a continuing process 

by which the Agency envisions 

its future and identifies the 

procedures, operations, and 

resources necessary to achieve 

that future. Activities are 

conducted in accordance with 

the Government Performance 

and Results Act of 1993 and 

USDA guidelines. 

The NRCS strategic planning 

process includes:

Appendix 4. 

Strategic Planning in NRCS

Inventories and 

Assessments 

Information on the status, 

condition, and trends of the 

Nation’s natural resources 

as well as workload, 

performance, and workforce 

data is gathered and assessed 

to determine resource 

concerns and approaches 

to address identified needs. 

Information is gathered at 

all levels of the Agency, from 

national assessments to locally 

identified priorities.

Identification and 

Analysis of Alternatives 

Alternative strategies for 

addressing identified resource 

concerns are developed and 

analyzed. Science-based 

resource analyses project 

the impact on resource 

conditions, and workload 

analyses define costs. 

Consultation and 

Consensus

Consultation with stakeholders, 

partners, government 

agencies, Tribes, and interest 

groups helps define general 

goals, objectives, and 

performance targets.

Communication 

The plan, with the associated 

goals and performance 

targets, is communicated to all 

levels of the Agency and to all 

stakeholders. 

Evaluation of Results 

Review and evaluation 

identify new information and 

analytical needs, leading in to 

the next planning cycle.

86 APPENDICES
H E A L T H Y E N V I R O N M E N T

FY 2005 Strategic 

Planning Process

During FY 2005, NRCS 

initiated an intensive 

strategic planning process 

to establish the Agency’s 

priorities and direction for 

the next 10 to 20 years. A 

core work team representing 

all levels of the Agency and 

all regions developed the 

planning process, identified 

needed information, 

and prepared working 

materials for consideration 

by the steering team. The 

steering team, composed 

of State conservationists 

and national-level officials, 

evaluated options and made 

recommendations to the Chief. 

The planning process 

included assessments of 

both internal and external 

conditions and issues. Core 

team analysts consulted with 

Agency discipline experts and 

reviewed studies conducted 

by NRCS and other agencies. 

They designed and conducted 

a Web-based survey of 

employees. The planning 

process also included more 

than 20 meetings and focus 

group sessions with external 

customers, partners, and other 

stakeholders. Key findings 

from focus group sessions are 

identified in Appendix 8.

The assessments provided 

data and information on 

natural resource issues, 

customer needs, and Agency 

products and services. The 

steering team defined and 

made preliminary assessments 

of the Agency’s key customers: 

who they are today and who 

they may be in the future. 

Based on analyses of this 

information, the Agency’s 

strategic plan includes revised 

natural resource goals and 

objectives and key tasks for 

achieving them. 

APPENDICES 87
P R O D U C T I V E L A N D S

NRCS program Authority

Conservation Operations (CO):

-Conservation Technical Assistance 

 (CTA)

-Soil Survey

-Snow Survey and Water Supply

 Forecasting

-Conservation Plant Materials 

 

Soil and Water Resources Conservation Act of 1977 

(16 U.S.C. 2001-2009)

Soil Surveys for Resource Planning and Development Act of 1966 

(40 U.S.C. Chapter 40 3271-3274)

Soil Conservation and Domestic Allotment Act of 1935 

(16 U.S.C. 590a-f )(590q)

Farmland Protection Policy Act of 1981 (7 U.S.C 4201)

Watershed Surveys and Planning Watershed Protection and Flood Prevention Act of 1954 

(16 U.S.C. 1001-1012)

Watershed and Flood Prevention 

Operations (P.L.-566, P.L.-534)

Watershed Protection and Flood Prevention Act of 1954 (P.L. 83-

566), as amended (16 U.S.C. 1001-1009)

Flood Control Act of 1944 (P.L. 78-534)(33 U.S.C. 701b-1)

Emergency Watershed Protection (EWP) Agricultural Credit Act of 1978 (16 U.S.C. 2203)

Emergency Operations authorization of 1950 

(16 U.S.C. 701b-1)

Resource Conservation and Development 

Program (RC&D)

Agriculture and Food Act of 1981 (16 U.S.C. 3451), as amended

Wetlands Reserve Program (WRP) Food Security Act of 1985 (16 U.S.C. 3837, et. seq.), as amended

Environmental Quality Incentives Program 

(EQIP)

Food Security Act of 1985 (16 U.S.C. 3839aa, et. seq.), as amended

Farm and Ranch Lands Protection 

Program (FRPP)

Food Security Act of 1985 (16 U.S.C. 3838h and 3838i), as 

amended

Wildlife Habitat Incentives Program 

(WHIP)

Food Security Act of 1985 (16 U.S.C. 3839bb-1), as amended

Watershed Rehabilitation Program Watershed Protection and Flood Prevention Act of 1954 

(16 U.S.C. 1001-1012), as amended

Conservation Security Program (CSP) Food Security Act of 1985, (16 U.S.C. 3838 et. seq.), as amended 

Grassland Reserve Program (GRP) Food Security Act of 1985, (16 U.S.C. 3838n et.seq.), as amended 

Appendix 5. 

NRCS Programs and Their Legislative Authorities

88 APPENDICES
H E A L T H Y E N V I R O N M E N T

Mission Goal Outcome Objective

High-quality, 

Productive Soils

Soil Quality: The quality of intensively 

used soils is maintained or enhanced to 

enable sustained production of a safe, 

healthy, and abundant food supply.

By 2010, farmers will manage 70 percent of 

cropland under systems that maintain or increase 

soil condition and soil carbon.

Clean and 

Abundant Water

Water Quality: The quality of surface 

waters and groundwater is restored and 

maintained to protect human health, 

support a healthy environment, and 

encourage a productive landscape.

By 2010, agricultural operators will reduce 

potential delivery of sediment and nutrients from 

their operations:

• Potential delivery of sediment will be 

reduced by 70 million tons.

• Potential delivery of nitrogen will be reduced 

by 375,000 tons.

• Potential delivery of phosphorus will be 

reduced by 70,000 tons.

Water Quantity: Water is conserved and 

protected to ensure an abundant and 

reliable supply for the Nation.

By 2010, 8 million acre-feet of water will be 

conserved.

Healthy Plant 

and Animal 

Communities

Grasslands, Rangeland, and Forest 

Ecosystems: Grassland, rangeland, 

and forest ecosystems are productive, 

diverse and resilient.

By 2010, farmers, ranchers, and private nonindustrial forest owners will apply management 

that will maintain or improve long-term 

vegetative condition on 150 million acres of 

grazing and forest land.

Fish and Wildlife Habitat: Working lands 

and waters provide habitat for diverse 

and healthy wildlife, aquatic species, and 

plant communities.

By 2010, an additional 9 million acres of essential 

habitat will be improved and managed to benefit 

at-risk and declining species.

Wetlands: Wetlands provide quality 

habitat for migratory birds and other 

wildlife, protect water quality, and 

reduce flood damages.

By 2010, land managers will create, restore or 

enhance 1.5 million acres of wetlands on nonFederal.

Clean Air Air Quality: Agriculture makes a positive 

contribution to local air quality and to 

the Nation’s efforts to sequester carbon.

To be established. The objective will be measured 

by tons of carbon sequestered.

An Adequate 

Energy Supply 

Agricultural activities conserve energy 

and agricultural lands are a source of 

environmentally sustainable biofuels 

and renewable energy.

To be established. The objective will be measured 

by BTUs conserved.

Working Farm and 

Ranch Lands

Connected landscapes that sustain a 

viable agriculture and natural resource 

quality.

By 2015, 70 percent of farms and ranches 

protected under easements will remain in active 

agriculture.

Appendix 6. 

Summary of NRCS Goals, Outcomes, and Objectives

APPENDICES 89
P R O D U C T I V E L A N D S

Appendix 7. 

Linkage of NRCS Strategic Plan to USDA Strategic Plan for FY 2005-2010

USDA Strategic Goal/

Objective

Agency Strategic 

Goal

Key Outcome Agency Objectives

USDA Strategic Goal 6: 

Protect and Enhance the 

Nation’s Natural Resource 

Base and Environment

USDA Strategic 

Objective 6.1: Protect 

Watershed Health 

to Ensure Clean and 

Abundant Water

Agency Goal:

Clean and 

Abundant Water

Water Quality: The quality 

of surface waters and 

groundwater is restored 

and maintained to 

protect human health, 

support a healthy 

environment, and 

encourage a productive 

landscape.

Objective: By 2010, 

agricultural producers will 

reduce potential delivery 

of sediment and nutrients 

from their operations:

• potential delivery 

of sediment will be 

reduced by 70 million 

tons.

• potential delivery 

of nitrogen will be 

reduced by 375,000 

tons.

• potential delivery of 

phosphorus will be 

reduced by 70,000 tons.

Water Quantity: Water is 

conserved and protected 

to ensure an abundant 

and reliable supply for 

the Nation.

Objective: By 2010, conserve 

8 million acre-feet of water.

Agency Goal: 

Working Farm and 

Ranch Lands

Working Farm and 

Ranch Land Preservation: 

Connected landscapes 

sustain a viable 

agriculture and natural 

resource quality.

Objective: By 2010, 70 

percent of farms and 

ranches protected under 

easements will remain in 

agriculture.

USDA Strategic Goal 

6: Protect and Enhance 

the Nation’s Natural 

Resource Base and 

Environment

USDA Strategic 

Objective 6.2:

Enhance Soil Quality 

to Maintain Productive 

Working Cropland

Agency Goal: 

High Quality, 

Productive Soils

Soil Quality: The quality 

of intensively used soils is 

maintained or enhanced 

to enable sustained 

production of a safe, 

healthy, and abundant 

food supply.

Objective: By 2010, farmers 

will manage 70 percent of 

cropland under systems that 

maintain or improve soil 

condition and increase soil 

carbon.

Agency Goal: 

Clean Air

Air Resources: Agriculture 

makes a positive 

contribution to local air 

quality and the Nation’s 

efforts to sequester 

carbon.

Objective: To be established. 

The objective will be 

measured by tons of carbon 

sequestered.

90 APPENDICES
H E A L T H Y E N V I R O N M E N T

USDA Strategic Goal/

Objective

Agency Strategic 

Goal

Key Outcome Agency Objectives

Agency Goal: 

An Adequate 

Energy Supply

Energy: Agricultural 

activities conserve 

energy and agricultural 

lands are a source 

of environmentally 

sustainable biofuels 

and renewable energy.

Objective: To be established. 

The objective will be 

measured by BTUs 

conserved.

USDA Strategic Goal 

6: Protect and Enhance 

the Nation’s Natural 

Resource Base and 

Environment

USDA Strategic 

Objective 6.3: Protect 

Forests and Grazing 

Lands

Agency Goal:

Healthy Plant and 

Animal Communities

Grasslands, Rangeland, 

and Forest Ecosystems: 

Grassland, rangeland, and 

forest ecosystems are 

productive, diverse, and 

resilient.

Objective: By 2010, farmers, 

ranchers, and private nonindustrial forest owners will 

apply management that will 

maintain or improve longterm vegetative condition 

on 150 million acres of 

grazing and forest land.

USDA Strategic Goal 

6: Protect and Enhance 

the Nation’s Natural 

Resource Base and 

Environment

USDA Strategic 

Objective 6.4: Protect 

and Enhance Wildlife 

Habitat to Benefit 

Desired, At-Risk, and 

Declining Species

Agency Goal:

Healthy Plant and 

Animal Communities

Fish and Wildlife Habitat: 

Working lands and 

waters provide habitat 

for diverse and healthy 

wildlife, aquatic species, 

and plant communities.

Objective: By 2010, an 

additional 9 million acres 

of essential habitat will be 

improved and managed to 

benefit at-risk and declining 

species.

Wetlands: Wetlands 

provide quality habitat 

for migratory birds and 

other wildlife, protect 

water quality, and reduce 

flood damages.

Objective: By 2010, resource 

managers will create, 

restore, or enhance 1.5 

million acres of wetlands on 

non-Federal lands.

APPENDICES 91
P R O D U C T I V E L A N D S

Appendix 8. 

Customer Focus Groups – Key Findings

In summer 2005, 11 customer 

focus group meetings were 

held across the country in 

order to gather information 

from NRCS’ diverse customer 

base. Groups were asked for 

input on how the Agency 

could improve and adjust 

its services and products in 

the next 2-5 years, as well as 

what the group foresaw as the 

drivers of change in the next 

20 years. The meetings were 

undertaken through a formal 

agreement with the National 

Association of Conservation 

Districts and conducted by an 

external third party consulting firm with focus groups 

expertise. The 11 focus group 

meetings were held in the 

locations at right.

Approximately 15 to 20 

participants attended 

each focus group. Meeting 

attendees included a broad 

range of current and future 

clients, including livestock 

and crop producers, as well 

as consultants and non-profit 

organizations.

Natural Resource 

Concerns

The most common themes 

were related to land fragmentation, urban sprawl, the 

proliferation of smaller farms 

operated by residential or 

lifestyle farmers, and the rise 

of absentee landownership. 

Attendees expressed that 

increasing land values and 

urban sprawl were the largest 

contributors to reduced 

profitability, increasing rents, 

absentee ownership, and the 

declining entry of new farmers. Attendees also expressed 

their concern that rising land 

Meeting Date Location

1 May 24, 2005 Dixon, CA

2 May 25, 2005 Billings, MT

3 May 26, 2005 Monmouth, IL

4 May 31, 2005 Millbrook, NY

5 June 2, 2005 Victoria, TX

6 June 3, 2005 Aurora, CO

7 June 7, 2005 Canton, MS

8 August 3, 2005 Grand Forks, ND

9 August 12, 2005 Oregon City, OR

10 August 17, 2005 Hadley, MA

11 August 18, 2005 Sanford, NC

92 APPENDICES
H E A L T H Y E N V I R O N M E N T

values have caused landowners to be more interested in 

short-term profitable uses 

for their land, rather than the 

long-term sustainability of 

their land and the adoption 

of conservation practices. Absentee owners and producers 

with limited lease options are 

reluctant to invest in conservation practices that come at a 

cost and are not transportable. 

With increasingly less land 

to farm, particularly in urban 

fringe areas, producers are 

exploring ways to make less 

land more profitable, including diversification, exploration 

of niche crops, precision 

farming, and agri-tourism. 

Water quality and future 

water supplies were common 

themes shared throughout the 

focus groups. Focus groups 

stressed the need to maintain 

and improve water quality, 

by addressing nutrient and 

pesticide runoff from cropland 

and animal operations and 

by controlling point source 

pollution from developed 

areas. In addition, focus group 

attendees expressed concern 

about depleting aquifers and 

the need to retain water for 

agricultural uses. Integrated 

water management planning 

that considers water provision 

and waste water management 

is needed, particularly where 

development pressures 

are the greatest. Attendees 

suggested that NRCS take 

an active role in watershed 

management planning, by 

facilitating the convening of 

water boards, assessing and 

identifying water availability, and working to develop 

additional water conservation 

measures that address water 

conservation and reduce the 

negative impacts of flooding.

Focus group attendees 

expressed a desire to maintain 

wildlife populations and 

ensure their genetic diversity. In some portions of the 

country, attendees expressed 

a need to retain old growth 

forests and woodlands. They 

also requested more data and 

information on brush and 

animal control and invasive 

species. 

NRCS Technical Services

Focus groups stressed the 

need for NRCS to continue 

to provide science-based, 

technical expertise. There is an 

expectation that NRCS can and 

should provide conservation 

planning and analysis skills to 

address conservation issues 

at the farm and ranch scale, 

as well as at the community, 

watershed and regional level. 

A majority of participants 

believe NRCS has the technical 

capabilities to develop the 

variety of tools necessary to 

meet future needs; however, 

the focus groups were less 

certain about the effective 

deployment of these tools 

to adjust to local conditions. 

Among all of the focus groups, 

there was a consistent call 

for more help in the form of 

technical assistance to accomplish conservation, with and 

without financial assistance.

Focus group attendees 

requested that NRCS continue 

to develop comprehensive 

standards, such as those contained within the Field Office 

Technical Guides, soil surveys, 

and other natural resource 

data tools, with an emphasis 

on making them easy to read, 

understandable, and flexible for use at the local level. 

Information and outreach 

continues to be important, despite a declining staff capacity 

available for outreach. While 

one-on-one visits may be less 

and less feasible, Web sites, 

public meetings, and targeting 

APPENDICES 93
P R O D U C T I V E L A N D S

specific audiences may be 

the best approach to achieve 

conservation outcomes.

Attendees supported 

the role of NRCS and the 

conservation districts and 

the grassroots delivery 

system. They expressed the 

need for NRCS to continue 

to cultivate partnerships 

across Federal, Tribal, State, 

and local boundaries to 

achieve common goals, such 

as sediment reduction in 

reservoirs, estuary health, 

and other water quality and 

water supply concerns. To 

accomplish these partnering 

tasks, there is a need to 

employ and train NRCS staff to 

have the skills and capabilities 

necessary to establish and 

foster partnerships.

Financial Assistance

Attendees supported the 

use of financial assistance 

to address resource needs 

and the need for continued 

funding by Congress of 

these programs. Attendees 

discouraged two-week signup periods and requested 

the ability to make programs 

flexible at the local level to 

address specific resource 

needs. Suggestions to 

improve existing programs 

included: streamlining 

existing programs; making 

them more user-friendly with 

simple, easy-to-read forms; 

hosting eligibility and sign-up 

meetings; and working with 

tenants to help them “sell” 

conservation to absentee 

landowners.

Future Directions

The focus groups saw the need 

for NRCS to provide technical 

and financial assistance in the 

areas of water quality, farm 

and ranch land protection, 

wildlife habitat, invasive 

and noxious plant species 

control, carbon sequestration, 

and renewable energy. 

The Agency should focus 

on educating the broader 

public about conservation, 

as demographics change 

and agricultural operations 

become more diversified, 

with a more varied clientele. 

For example, attendees 

suggested that NRCS work 

with developers to install 

buffer zones, minimizing 

friction between rural and 

urban land users. Attendees 

also encouraged the 

development of a rural lands 

mitigation banking program 

that would require developers 

to contribute to purchase of 

development rights programs 

and other conservation 

programs that would offset 

the negative environmental 

impacts of development in 

rural areas. Related to urban 

encroachment and land 

fragmentation, there is a need 

to expand technical guidelines 

and programs to assist smalllot owners with wildlife, soil 

and water conservation. 

In summary, attendees 

believed NRCS should 

continue to provide technical 

expertise to individuals and 

groups on private lands to 

address soil, water, wildlife, 

and other natural resource, 

concerns. The Agency 

should also work to expand 

and foster partnerships 

to address regional and 

watershed-scale efforts, 

obtaining multiple resource 

benefits in the process. To 

ensure quality decisionmaking 

now and in the future, NRCS 

should continue to focus 

on maintaining a complete 

national technical assistance 

infrastructure with emphasis 

on the technical data, 

information, knowledge, tools, 

and procedures.

94 APPENDICES
H E A L T H Y E N V I R O N M E N T

Appendix 9. 

All Employee Survey – Summary of Results

In July 2005, an All Employee 

Survey was conducted to 

gather input from Agency staff 

at all organizational levels. The 

survey was made available via 

the Agency’s Intranet and was 

active for a two-week period. 

Employees were asked to 

respond to 15 questions that 

sought their perspectives on a 

wide range of issues including 

the Agency mission statement 

and guiding principles, business lines, customer segments, 

natural resource concerns, and 

service delivery. 

Survey results were used to 

inform the Strategic Planning 

Steering Team deliberations, 

often serving to illuminate 

points of divergence. Survey 

results were particularly useful 

in guiding discussions on 

mission and vision statements 

and customer segments, 

and in defining the Agency 

mission goals, objectives, and 

key tasks reflected in this plan. 

The following summarizes key 

survey results.

Survey Response and 

Respondents

Nearly 3,000 survey responses 

were received. Three-fourths 

of the responses were from 

field office employees, 

engaged in providing 

technical assistance directly 

to Agency customers. The 

majority were Agency 

employees of 11 years 

or longer. Geographic 

distribution of responses 

was fairly uniform across the 

Agency’s three regions. 

Mission and Values

Employees strongly support 

and are motivated by the 

Agency’s core mission of 

helping people conserve, 

maintain, and improve natural 

resources. Most employees 

feel that they and their 

colleagues are committed to a 

service organization and agree 

that “Technical Excellence” is 

highly valued. They also feel 

that they have the knowledge 

and skills to perform their jobs 

effectively. 

Customers

The agricultural customer 

segment is clearly the primary 

group with whom Agency 

employees work. Full- and 

part-time farmers and 

ranchers, limited resource 

producers, and conservation 

partners are the primary 

users of Agency products 

and services. These groups 

are expected to remain the 

Agency’s primary customers in 

the future. While specialty crop 

producers, communicators, 

citizen groups, and private 

sector consultants will be 

increasing their use of Agency 

products and services, they 

are expected to remain a small 

share of the overall Agency 

customer base. 

Technical Service Delivery

Employees value the technical 

assistance delivery system, 

and identify one-on-one 

technical assistance as 

the current and future 

emphasis for service delivery. 

Conservation planning and 

technical consultations and 

conservation implementation 

currently comprise about 

half of employees’ daily work 

activity. Customer demand 

for conservation planning 

and technical consultations 

is expected to increase over 

the next 10 to 20 years, as is 

the importance of electronic 

information and service 

delivery methods.

Natural Resource Issues

Soil erosion and water quality 

are the leading natural 

resource issues for which 

customers presently seek 

assistance from Agency 

employees. In the future, 

water quantity, soil and plant 

condition, and connected 

landscapes are expected to 

increase in importance, but will 

not outpace soil erosion and 

water quality as the primary 

natural resource issues.

APPENDICES 95
P R O D U C T I V E L A N D S

Appendix 10. 

NRCS Business Lines

NRCS Business Lines 

and Product and Service 

Descriptions

The mission of the Natural 

Resources Conservation 

Service is Helping People Help 

the Land. 

In fulfilling that “helping 

people” portion of this naturalresource-based mission, 

NRCS provides technical and 

financial assistance to land 

owners and managers through 

five business lines. Business 

lines are groups of similar 

products and services that 

Agency employees deliver to 

external customers. There are 

15 core products and services 

in the business lines. Four 

of the five business lines are 

technical assistance based and 

one is financial assistance.

NRCS Business 

Line: Conservation 

Planning and Technical 

Consultations 

Conservation Planning and 

Technical Consultations

results in either the transfer 

of data, information, or a 

conservation plan that helps 

customers protect, and 

conserve natural resources 

(soil, water, air, plant and 

animal) within their social 

and economic interests. The 

planning process will identify 

natural resource problems 

and opportunities, determine 

objectives, inventory resources, 

analyze resource data, 

formulate alternatives, evaluate 

alternatives, and help with the 

selection of alternatives, as well 

as implementation of the plan 

and evaluation of the plan.

Product or Service Lines

1. Conservation Plans.

NRCS develops conservation 

plans with customers for a 

geographic area they define. 

The scale of the plans include:

Site-specific Plan: Site-specific conservation plans 

usually refers to a farm or 

ranch operating unit but 

may also be developed for 

a group. Conservation plans 

may include program plans 

and whole farm plans developed with automated aids 

and GIS systems (Customer 

Service Tool Kit).

Area-wide Plan: Area-wide 

and community based 

Conservation Plans or Area 

Conservation Assessments 

integrate social, economic, 

•

•

and ecological concerns 

over a defined geographical area. An area-wide plan 

is generally at a larger scale 

than a site-specific plan and 

allows the client or stakeholder to assess natural 

resource concerns, determine what conditions are to 

be desired, and formulate 

alternatives in achieving 

plan objectives.

Watershed Plan: Watershed 

plans include the formulation of integrated proposals 

for the entire watershed 

with natural resource management in which local decision-makers make informed 

choices that depend on the 

objectives and priorities of 

the people living in the area.

2. Technical Consultations 

and Planning Assistance. 

Professional advice is provided 

to customers to help them 

make decisions about natural 

resource management. This 

service may or may not lead 

to a plan or a commitment to 

a plan. Planning assistance 

includes some or all of the following components: identify 

natural resource problems 

and opportunities, determine 

objectives, inventory 

resources, analyze resource 

•

96 APPENDICES
H E A L T H Y E N V I R O N M E N T

data, formulate alternatives, 

evaluate alternatives, select 

alternatives, and implement 

and evaluate the plan. It also 

includes assistance to USDA 

program customers who 

seek to maintain eligibility 

with highly erodible land and 

wetland conservation compliance. Technical assistance is 

also provided to customers 

who seek to comply with 

other Federal, State, or local 

ordinances and environmental 

regulations.

Consultations and Planning 

Assistance includes assistance 

to communities, units of 

government or Tribes, and the 

planners within those groups 

who use their own planning 

process. 

NRCS Business Line: 

Conservation 

Implementation

Conservation 

Implementation assists 

operators and landowners 

in installing conservation 

treatments, management 

measures, and management 

systems that result in 

improved treatment of the 

resources.

Product or Services Lines

1. Designs. 

Designs are prepared 

for engineering and 

management practices that 

meet established technical 

standards and specifications. 

The preparation of operation 

and maintenance guidelines 

are an important part of this 

process. This product includes 

the surveys, field layout of 

conservation practices, spot 

checks, inspection, and asbuilt designs for engineering 

and management practices.

 

2. Follow-up. 

Follow-up is conducted with 

a client during planning and 

implementation and following 

implementation. Guidance 

and coordination are provided 

for implementing the next 

treatment. Operation and 

maintenance requirements 

are reviewed with the client. 

Follow-up includes more 

formal, annual Program Status 

Reviews to assess the status 

of contracts, planning needs, 

and the function of installed 

practices.

3. Conservation Compliance 

Checks and Reviews. 

Mandated reviews ensure 

that USDA program 

participants are meeting their 

responsibility to protect highly 

erodible land and wetlands.

NRCS Business Line: 

Natural Resources 

Inventory and Assessment

Natural Resources Inventory 

and Assessment includes 

the acquisition, development, 

interpretation, and delivery 

of natural resource data 

and information for natural 

resource planning, decision 

making, and program and 

policy development at 

multiple scales.

Product or Service Lines

1. Protocols and Procedures 

for Gathering and Delivering 

Data. 

Protocols and procedures 

for natural-resource data 

acquisition, development, 

analysis, management, and 

delivery provide systematic 

and reliable information 

for resource management 

decisions. This product and 

service line includes:

Processes for acquiring, 

aggregating, archiving, and 

integrating data. Examples 

include:

Sample design, data 

collection protocols, and 

systematic data interpretation for the National 

Cooperative Soil Survey 

(NCSS).

•

•

APPENDICES 97
P R O D U C T I V E L A N D S

Sample design, data 

collection protocols, and 

statistical estimation 

techniques for the 

National Resources 

Inventory (NRI).

Spatial criteria for 

Common Resource Areas, 

Major Land Resource 

Areas, soil map unit 

delineations, digital 

elevation data, and digital 

ortho-photoquads. 

Scientific protocols for 

quantifying the effects of 

conservation programs 

and practices.

Procedures for “BusinessCase” development. The 

result is a definition of the 

data quality requirements 

that drive the product. 

2. Databases and Data 

Delivery. User-oriented 

delivery and maintenance 

of geospatial datasets and 

information. This product and 

service line includes:

Geospatial datasets and 

products for field office 

Customer Service Toolkit 

plug-ins including:

•

•

•

•

•

Digital elevation data, 

faster graphics, streams, 

transportation, and digital 

ortho-photoquads.

Boundary datasets—

watersheds, Soil and 

Water Conservation 

District boundaries, 

common resource areas, 

RC&D program areas, and 

major land resource areas.

Technical datasets for 

scientists, service providers, 

and land users. Technical 

datasets include soil survey 

databases (National Soil 

Information System [NASIS]), 

laboratory data, Official 

Soil Survey Descriptions); 

NRI database; Snow Survey 

Telemetry (SNOTEL) 

database; PLANTS database; 

and Climate Information 

data access databases.

 Web-based geospatial data 

access portals. The portals 

include Geospatial Data 

Gateway, Web Soil Survey, 

and Soil Data Mart.

3. Assessments and Analyses.

Natural resource data and 

model results are interpreted 

and analyzed to inform 

decision makers and facilitate 

policy development. This 

•

•

•

•

product and service line 

includes conservation 

effects assessments, 

resource condition and 

trends assessments (e.g., NRI 

findings on wetlands, land 

use, and soil erosion trends), 

climate assessments and 

drought monitoring, water 

supply forecasts, soil survey 

interpretations, etc. 

NRCS Business Line: 

Natural Resource 

Technology Transfer

Natural Resource 

Technology Transfer

evaluates, acquires, develops, 

and transfers conservation 

tools, techniques, and 

standards based on research 

and new technologies. This 

includes the production 

and delivery of technical 

tools used in resource 

assessment, conservation 

planning, and conservation 

system installation, including 

computer applications, 

standards and guidance 

documents, criteria, and 

plant materials, and the 

development and delivery of 

training in the use of NRCS 

tools and methodologies in 

conservation planning and 

the design of conservation 

practices and systems. 

98 APPENDICES
H E A L T H Y E N V I R O N M E N T

Product or Service Lines

1. Technology Tools.

Standards: NRCS conservation practice standards provide guidance for applying 

conservation technology on 

the land and set the minimum level for acceptable 

application of the technology for conservation of 

the affected resource at a 

sustainable use level. NRCS 

issues national conservation 

practice standards in its National Handbook of Conservation Practices (NHCP).

Specifications: Specification 

documents (job sheets, 

drawings, plans, etc.) establish the technical details 

and workmanship required 

to install the conservation 

practice in accordance with 

the requirements of the conservation practice standard.

Guides and References: 

Guides and References are 

developed as the primary 

scientific reference for NRCS 

program implementation. 

Technical guides, called 

Field Office Technical Guides 

(FOTG) are localized so 

they apply to the specific 

geographic area for which 

•

•

•

they are prepared. There 

is a FOTG for each local 

conservation district in the 

U.S. Parts of the FOTG are 

automated and Web-based. 

Technical References are 

scientifically based guidance 

that includes a number of 

handbooks, training guides, 

manuals, and technical 

resources. Much of this 

guidance is available in electronic format. Topics include 

animal husbandry, conservation engineering, ecological sciences, and resource 

economics.

Computer applications:

These tools support conservation planning and implementation and provide land 

users with alternatives for 

making decisions that will 

reduce soil erosion, reduce 

sedimentation, maintain 

soil resources, and enhance 

other aspects of environmental quality. Examples of 

these tools include Technical Release 55 (TR-55) for 

calculating runoff in built up 

areas, Nutrient Balance (NutBal), the Revised Universal 

Soil Loss Equation II (RUSLE 

II), and the Wind Erosion 

Equation (WEQ) program. 

•

Modeling and Information 

Systems: Models respond 

to agricultural and environmental questions and support natural resource assessment. Examples of products 

and services include Water 

Supply Forecasting System, 

Soil Climate Analysis Network, EPIC (Erosion Productivity-Impact Calculator) 

and CENTURY (soil organic 

matter model).

2. Training and Certification.

A training support structure 

exists to provide technical 

training in a formal setting 

and in local informal training 

sessions regarding the use 

of new technology, updated 

technology, and practical use 

of technology in the field. 

Certification standards and 

procedures are developed and 

administered.

3. Plant Materials.

Development, testing, and 

transfer of state-of-the-art 

plant science technology 

helps meet customer 

and resource needs 

including water and wind 

erosion reduction, water 

management, biomass 

technology, control of 

invasive species, and wildlife 

habitat elements.

•

APPENDICES 99
P R O D U C T I V E L A N D S

NRCS Business Line: 

Financial Assistance

Financial Assistance includes 

cost share and monetary 

incentives through program 

contracts, easements, or other 

means to qualified program 

participants who participate 

in authorized USDA NRCS 

conservation programs. 

Financial assistance helps 

motivate producers to treat 

natural resource problems 

and to help sustain natural 

resources. 

Product or Service Lines

1. Cost-share/Incentives.

Cost-share payments are 

made available to reimburse 

program participants 

for part of the expense 

incurred for installing one 

or more conservation 

practices that optimize 

environmental benefits 

while achieving agricultural 

and environmental quality 

goals. The cost share is 

usually a percentage of the 

cost shown in the contract. 

The participant’s expenses 

might include money, labor, 

•

or equipment. The program 

participant submits bills 

and other documentation 

to support a request for 

payment. 

Incentive payments are 

provided as monetary or 

financial assistance to the 

participant in an amount 

and at a rate determined 

appropriate to encourage 

the participant to perform a 

land management practice 

that would not otherwise be 

initiated without program 

assistance.

2. Easements.

Easements are offered to 

protect conservation or 

natural-resource-related 

interest in land defined and 

delineated in a deed whereby 

the landowner conveys 

rights, title, and/or interests 

in a property to the grantee. 

However, the landowner 

retains general ownership and 

control of the property.

•

3. Grants. 

Grants are offered to establish 

a relationship between 

NRCS and a State or local 

government or other recipient. 

The principal purpose of the 

relationship is the transfer of 

value to a recipient in order to 

accomplish a public purpose 

of support or stimulation 

authorized by Federal 

law. Substantial Federal 

involvement is not anticipated. 

These grants may be funded 

up to 100 percent by NRCS.

4. Stewardship Payments. 

Stewardship payments allows 

the Agency to direct financial 

assistance to participants 

as a way to influence the 

continued protection and 

sustainability of natural 

resources, which includes soil, 

water, air, plants, and animals.

100 APPENDICES


The U.S. Department of Agriculture (USDA) prohibits discrimination in all its programs and activities on 

the basis of race, color, national origin, age, disability, and where applicable, sex, marital status, familial 

status, parental status, religion, sexual orientation, genetic information, political beliefs, reprisal, or 

because all or a part of an individual’s income is derived from any public assistance program. (Not all 

prohibited bases apply to all programs.) Persons with disabilities who require alternative means for communication of program information (Braille, large print, audiotape, etc.) should contact USDA’s TARGET 

Center at (202) 720-2600 (voice and TDD). To file a complaint of discrimination write to USDA, Director, 

Office of Civil Rights, 1400 Independence Avenue, S.W., Washington, D.C. 20250-9410 or call (800) 795-

3272 (voice) or (202) 720-6382 (TDD). USDA is an equal opportunity provider and employer.

United States Department of Agriculture

Natural Resources Conservation Service
H e l p i n g P e o p l e H e l p t h e L a n d