United States General Accounting Office

GAO Report to the Chairman, Committee on

the Budget, House of Representatives

December 1998 U.S. DEPARTMENT

OF AGRICULTURE

Similarities Between

the Activities of the

Department and Other

Federal Agencies

GAO/RCED-99-35

GAO United States

General Accounting Office

Washington, D.C. 20548

Resources, Community, and

Economic Development Division

B-281429 

December 9, 1998

The Honorable John R. Kasich

Chairman, Committee on the Budget

House of Representatives

Dear Mr. Chairman:

The U.S. Department of Agriculture (USDA) is one of the oldest and largest

civilian agencies in the federal government, with about 100,000 employees

and budget obligations totaling $76 billion in fiscal year 1997. The

Department’s original mission—to conduct activities related to

agriculture—has evolved significantly. Today, in addition to agriculture

programs, USDA administers over 200 programs in such diverse areas as

economic development; food assistance; food safety; international trade

and marketing; and land management.

Given the range of the Department’s activities, you asked us to identify

those that are similar to the activities conducted by other federal agencies

and to discuss USDA’s efforts to comply with the requirements of the

Government Performance and Results Act.1

 In response, we identified

apparently similar activities, such as food safety and land management,

that are carried out by more than one agency; examined previous GAO

reports that highlight these similarities; and reviewed the goals of the

Government Performance and Results Act and USDA’s efforts to comply

with it. Our analysis highlights many of the activities that are apparently

similar. However, USDA’s activities may not be directed at the same

clientele as those carried out by other federal agencies, and other

agencies’ activities may be only a part of their overall mission. Our

analysis did not determine all of the similar activities nor the extent of any

overlap or duplication. To make such determinations would require a

substantially more detailed analysis, which was beyond the scope of our

review.

We identified similar activities by (1) identifying those federal budget

functions and subfunctions in which both USDA and other federal agencies

1

The act is designed to improve the efficiency and effectiveness of federal programs by establishing a

system to set goals for program performance and to measure results. The act requires executive

agencies to prepare multiyear strategic plans, annual performance plans, and annual performance

reports.

Page 1 GAO/RCED-99-35 Similarities of USDA’s Activities
B-281429 

spent funds;2 (2) comparing USDA’s missions, objectives, and goals as

outlined in the Department’s strategic and annual performance plans with

those of other departments;3

 (3) reviewing the U.S. Government Manual,

agency documents, and other relevant documents to determine activities

other agencies conduct; and (4) reviewing prior GAO reports on related

topics.

Results in Brief Many of USDA’s activities—such as those related to food safety, land

management, international trade, economic development, housing,

statistics, and nutrition—appear to be similar to those of other federal

agencies. For example, food inspection services are provided by both

USDA’s Food Safety and Inspection Service and the Department of Health

and Human Services’ (HHS) Food and Drug Administration. We have

reported on the fundamental management problems some of these

similarities create for USDA and have, in some cases, recommended

organizational changes. For example, some of the land management

activities of USDA’s Forest Service and of the Department of the Interior’s

Bureau of Land Management, National Park Service, and Fish and Wildlife

Service are similar; we have reported that land management activities

could be carried out more efficiently and effectively either by combining

these agencies or by coordinating and integrating their functions,

activities, and field locations.4

The Government Performance and Results Act was designed in part to

help address apparent similarities in agencies’ activities by requiring

federal agencies to prepare annual performance plans, including an

explanation of how the agencies will coordinate their similar activities.

However, as we reported in June 1998, while most of USDA’s component

agencies’ plans at least partially discussed the need to coordinate with the

agencies having related strategic or performance goals, the Department’s

fiscal year 1999 annual performance plan did not explain how USDA

2

USDA makes expenditures in 10 of the 17 budget functions concerned with broad areas of need.

These 10 include Agriculture, Commerce and Housing Credit, Community and Regional Development,

Energy, General Government, Health, Income Security, International Affairs, Natural Resources and

Environment, and Transportation.

3

An agency’s strategic plan includes a mission statement, long-term general goals and objectives, and a

description of how the agency intends to achieve those goals through its activities. It also explains key

external factors that could significantly affect the achievement of those goals. An annual performance

plan contains an agency’s annual performance goals to gauge its progress toward accomplishing its

strategic goals.

4

Federal Land Management: Streamlining and Reorganization Issues (GAO/T-RCED-96-209, June 27,

1996).

Page 2 GAO/RCED-99-35 Similarities of USDA’s Activities
B-281429 

agencies are coordinating crosscutting issues both within and outside the

Department.5

Background When USDA was established in 1862, more than half of the American

workforce was engaged in farming. The Department’s objectives, as

outlined by the first Commissioner of Agriculture, were to (1) collect,

arrange, and publish statistical and other useful agricultural information;

(2) introduce valuable plants and animals; (3) answer farmers’ inquiries on

agriculture; (4) test agricultural implements; (5) conduct chemical

analyses of soils, grains, fruits, plants, vegetables, and manures;

(6) establish a professorship of botany and entomology; and (7) establish

an agricultural library and museum.

Since then, new needs and problems have caused USDA’s responsibilities to

expand greatly. USDA’s current departmental mission is to enhance the

quality of life for the American people by (1) supporting production

agriculture; (2) ensuring a safe, affordable, nutritious, and accessible food

supply; (3) caring for agricultural, forest, and range lands; (4) supporting

the sound development of rural communities; (5) providing economic

opportunities for farm and rural residents; (6) expanding global markets

for U.S. agricultural and forest products and services; and (7) working to

reduce hunger in America and throughout the world. To accomplish this

overall mission, USDA has organized its agencies into seven mission areas:

Farm and Foreign Agricultural Services; Food, Nutrition, and Consumer

Services; Marketing and Regulatory Programs; Food Safety; Natural

Resources and Environment; Research, Education, and Economics; and

Rural Development. Appendixes I through VII describe USDA’s seven

mission areas in more detail, including a description of each agency’s

mission and activities, similarities to other federal agencies, and prior GAO

reports discussing these similarities.

Figure 1 shows, by mission area, how USDA funds were obligated in fiscal

year 1997.

5

Results Act: Observations on U.S. Department of Agriculture’s Annual Performance Plan for Fiscal

Year 1999 (GAO/RCED-98-212R, June 10, 1998).

Page 3 GAO/RCED-99-35 Similarities of USDA’s Activities
B-281429 

Figure 1: USDA’s Budget Obligations

by Mission Area, Fiscal Year 1997

Marketing and Regulatory Programs 

($1.4 billion)

Food, Nutrition, and Consumer 

Services ($36 billion)

Farm and Foreign Agricultural 

Services ($20.9 billion)

Natural Resources and Environment 

($4.4 billion)

Research, Education, and 

Economics ($2 billion)

Food Safety ($0.7 billion)

Departmental Administration 

($0.6 billion)

Rural Development ($10.3 billion)

47.2%

27.4%

13.5%

5.8%

2.6%

0.8%

0.9%

1.8%

Note: Obligations totaled $76 billion.

Source: Budget of the United States Government, Fiscal Year 1999.

Concerning organizational structure, we have reported that the number

and diversity of USDA’s responsibilities create fundamental management

problems for the Department.6

 These include difficulties in the following

areas:

• establishing a meaningful set of overarching departmentwide objectives

because several of USDA’s current responsibilities are not related to one

another or may conflict;

• managing a conglomerate of many independent agencies and offices; and

6

Federal Management: Overview of Major Management Issues Facing Executive Agencies

(GAO/OCG-98-1R, Jan. 9, 1998).

Page 4 GAO/RCED-99-35 Similarities of USDA’s Activities
B-281429 

• effectively carrying out responsibilities, such as those in the food safety

and food assistance areas, that are part of broader federal efforts shared

among several federal agencies.

Many of USDA’s

Activities Seem

Similar to Those of

Other Federal

Agencies

We identified a number of similar activities performed by both USDA and

other agencies through our analysis of USDA and other agencies’ budget

functions, mission statements, strategic and annual performance plans,

and other agency documents, as well as the U.S. Government Manual and

past GAO reports. For example, food inspection services are provided by

both USDA’s Food Safety and Inspection Service and HHS’ Food and Drug

Administration; land management activities are carried out by the Forest

Service and three agencies within the Department of the Interior; and

statistical activities are carried out by USDA’s National Agricultural

Statistics and Economic Research Services and at least nine other federal

agencies. These apparent similarities and others related to international

trade, economic development, rural housing, and nutrition are discussed

in greater detail below and in appendixes I through VII.

Food Safety Inspection

Activities

USDA’s Food Safety and Inspection Service—in USDA’s food safety mission

area (see app. I)—regulates the safety, wholesomeness, and proper

labeling of most domestic and imported meat and poultry sold for human

consumption. The Food and Drug Administration, through its inspection

activities, is similar to FSIS in the way it carries out its responsibilities for

ensuring that domestic and imported food products—except for most

meats and poultry—are safe, sanitary, nutritious, and wholesome and are

honestly labeled. We have reported that this division of responsibility is

ineffective and inefficient and have recommended the formation of a

single food safety agency.7

 On August 25, 1998, the President issued an

executive order establishing the President’s Council on Food Safety to

develop a comprehensive strategic plan for federal food safety activities,

including a coordinated food safety budget.

Land Management

Activities

USDA’s Forest Service—part of USDA’s Natural Resources and Environment

mission area (see app. II)—is responsible for sustaining the health,

productivity, and diversity of the nation’s forests and rangelands. At least

three other federal agencies—the Bureau of Land Management, the Fish

and Wildlife Service, and the National Park Service within the Department

7

Food Safety: Opportunities to Redirect Federal Resources and Funds Can Enhance Effectiveness

(GAO/RCED-98-224, Aug. 6, 1998); Food Safety: Fundamental Changes Needed to Improve the Nation’s

Food Safety System (GAO/T-RCED-98-24, Oct. 8, 1997).

Page 5 GAO/RCED-99-35 Similarities of USDA’s Activities
B-281429 

of the Interior—perform some similar land management activities. We

have reported that the responsibilities of these four major federal land

management agencies have grown more alike over time. Because these

agencies perform numerous similar activities and have complex and

sometimes conflicting laws governing their land management activities,

we have concluded that these activities could be carried out more

efficiently and effectively either by combining the agencies or by

streamlining the existing structure through the coordination and

integration of functions, activities, and field locations.8

International Trade

Activities

USDA’s Foreign Agricultural Service—part of USDA’s Farm and Foreign

Agricultural Services mission area (see app. III)—serves U.S. agriculture’s

international interests by expanding export opportunities for U.S.

agricultural, fish, and forest products. At least two other federal agencies

are also involved in international trade. The Department of Commerce’s

International Trade Administration promotes U.S. exports. The U.S. Trade

and Development Agency—an independent federal agency—helps U.S.

companies, including those involved in agriculture, pursue overseas

business opportunities. We have reported that federal export activities are

fragmented among several agencies and could better serve the nation’s

business interests through closer cooperation.9

 Currently, USDA is part of

an interagency Trade Promotion Coordinating Committee, along with the

Departments of State and Commerce, that has been charged with

developing a governmentwide strategic plan for strengthening federal

export promotion services. According to USDA officials, improvements in

coordination have been made with the other agencies.

Economic Development

Activities

USDA’s Rural Business-Cooperative Service—part of the Department’s

Rural Development mission area (see app. IV)—provides loans and grants

for economic and business development in rural communities. At least

four other agencies—the Department of Commerce’s Economic

Development Administration, the Department of Housing and Urban

Development (HUD), the Small Business Administration, and the

Appalachian Regional Commission—provide similar services. All of these

agencies provide loans and/or grants for the economic development of

8

Federal Land Management: Streamlining and Reorganization Issues (GAO/T-RCED-96-209, June 27,

1996).

9

Export Promotion: Governmentwide Plan Contributes to Improvements (GAO/T-GGD-94-35, Oct. 26,

1993); Export Promotion: Initial Assessment of Governmentwide Strategic Plan (GAO/T-GGD-93-48,

Sept. 29, 1993); Export Promotion: Governmentwide Strategy Needed for Federal Programs

(GAO/T-GGD-93-7, Mar. 25, 1993).

Page 6 GAO/RCED-99-35 Similarities of USDA’s Activities
B-281429 

communities throughout the nation. However, while the activities of some

of these agencies, such as RBS, are national in scope, others have a more

narrowly focused clientele. For example, the Appalachian Regional

Commission supports economic development only in Appalachia.

Housing Activities USDA’s Rural Housing Service—part of USDA’s Rural Development mission

area (see app. IV)—provides direct and guaranteed housing loans to

borrowers in rural communities. HUD and the Department of Veterans

Affairs perform similar activities, but their clienteles are somewhat

different. We have reported that although a number of other federal

programs share in HUD’s mission to assist households that may be

underserved by the private market, none reach as many households as

does HUD’s Federal Housing Administration (FHA).10

Statistical Activities USDA’s National Agricultural Statistics Service (NASS)—in USDA’s Research,

Education and Economics mission area (see app. V)—is responsible for

serving agriculture and its rural communities by providing objective

statistical information and services. There are 11 principal federal

statistical agencies, including NASS and USDA’s Economic Research Service.

We have reported that while this decentralized system contributes to

inefficiency, consolidating this function could result in diminished

responsiveness to some customers and possible objections to the

concentration of data in a single agency.11

Nutrition Activities USDA’s Food and Nutrition Service—part of the Department’s Food,

Nutrition, and Consumer Services mission area (see app. VI)—provides

children and needy families with access to a more healthful diet through

its food assistance programs and nutrition education efforts. HHS performs

some similar food assistance and nutrition education activities. For

example, HHS’ Maternal and Child Health Bureau provides nutrition

education activities that are similar to those of FNS’ Special Supplemental

Nutrition Program for Women, Infants, and Children program. Both

agencies provide funding to the states to meet the nutritional and

developmental needs of mothers and children. In addition, both HHS and

FNS conduct similar activities to improve the nutrition of the elderly. We

have reported that one alternative to reducing costs and streamlining

10Homeownership: FHA’s Role in Helping People Obtain Home Mortgages (GAO/RCED-96-123, Aug. 13,

1996).

11Statistical Agencies: Consolidation and Quality Issues (GAO/T-GGD-97-78, Apr. 9, 1997).

Page 7 GAO/RCED-99-35 Similarities of USDA’s Activities
B-281429 

operations in USDA would be to consolidate the meal programs for the

elderly in HHS, thereby giving the funding responsibility to the agency that

provides the most funding and has overall oversight responsibilities for

meal programs for the elderly.12

GPRA Provides

Framework for USDA

and Other Federal

Departments to

Identify and

Coordinate Similar

Activities

The Government Performance and Results Act of 1993 seeks to focus

government decision-making and accountability on the results of

activities. The act requires federal agencies to prepare annual performance

plans, including an explanation of how similar activities will be

coordinated with other agencies.

As we reported in June 1998, while the plans of most of USDA’s component

agencies at least partially discussed the need to coordinate with agencies

having related strategic or performance goals, many of these fiscal year

1999 annual performance plans did not explain how this coordination

would be accomplished. For example, although the Forest Service’s

performance plan emphasized efforts to ensure sustainable ecosystems, it

did not discuss how the Service would coordinate its efforts with those of

other agencies having a similar goal, including the Natural Resources

Conservation Service; the Environmental Protection Agency (EPA); the

Department of Interior; state conservation agencies; or environmental,

timber, and industrial organizations.

Scope and

Methodology

We used several methods to identify similar activities at USDA and other

federal agencies. We compared USDA’s expenditures by budget function

and subfunction with those of other federal agencies. We also compared

USDA’s missions, objectives, and goals with those of other departments, as

identified in the departments’ strategic and performance plans. We

reviewed the U.S. Government Manual, agency documents, and other

pertinent documents to determine other activities agencies conduct.

Finally, we reviewed prior GAO reports that dealt with these particular

agencies and issues. Individually, these methods have some limitations, as

discussed below. However, collectively, these methods allowed us to

identify most of the more significant similarities between USDA and other

agencies.

Budget function and subfunction classifications are intended to provide a

means of identifying budget data according to the major purpose served.

Since 1979, the Office of Management and Budget has tried to use

12Food Assistance Programs (GAO/RCED-95-115R, Feb. 28, 1995).

Page 8 GAO/RCED-99-35 Similarities of USDA’s Activities
B-281429 

subfunctions to more discretely portray the missions of the federal

government. However, in some cases, this process aggregates very

different activities. For example, USDA’s Food Safety and Inspection

Service is categorized under Consumer and Occupational Health and

Safety along with other agencies, such as the Consumer Product Safety

Commission and the Department of Labor’s Mine Safety and Health

Administration, which have no activities related to food safety. This

process also leaves out agencies that previous GAO reports have identified

as conducting activities concerning food safety, such as the Centers for

Disease Control and Prevention and EPA.

We also reviewed USDA’s and some of the other agencies’ strategic and

performance plans to identify similar activities. While we found similar

missions and objectives, this review did not produce information on

whether the activities these agencies performed were similar. For

example, while the Forest Service and the Bureau of Land Management

have a very similar mission, only some of the activities conducted by these

agencies are similar.

Finally, we reviewed the U.S. Government Manual, agency documents,

other relevant documents, and prior GAO reports to supplement the

information we found from our analysis of budgets and strategic plans. We

have written a number of reports on selected aspects of the

responsibilities and performances of USDA’s agencies. We discuss many of

these reports’ findings on similarities in agencies’ activities in appendixes I

through VII.

Our analysis highlights many of the activities that are apparently similar

but does not determine all of the similar activities nor the extent of any

overlap. To make such determinations would require a substantially more

detailed analysis, which was beyond the scope of our review.

We conducted our work from June 1998 through December 1998 in

accordance with generally accepted government auditing standards.

Agency Comments We met with USDA officials, including the Director of Budget and officials

from related mission areas. USDA generally agreed with our presentation of

the agencies’ activities. However, the officials expressed concern that the

report could be somewhat misleading. They believed that USDA’s activities

were different from the activities of other federal agencies in terms of the

clientele served and the precise services or assistance provided. They

Page 9 GAO/RCED-99-35 Similarities of USDA’s Activities
B-281429 

suggested that the report’s presentation could be improved by clarifying

the definition of similar activities, the extent to which these similar

activities were part of the agencies’ overall mission, and the differences in

the clientele served by the agencies. They also suggested some technical

changes. We made modifications to the report as appropriate to reflect

these concerns and suggestions, including clarifying that the activities we

classify as similar may not be directed at the same clientele and may also

be only a part of the overall mission of the other federal agencies.

As agreed with your office, unless you publicly announce its contents

earlier, we plan no further distribution of this report until 30 days after the

date of this letter. At that time, we will provide copies of this report to the

Senate Committee on Agriculture, Nutrition, and Forestry and the House

Committee on Agriculture; other interested congressional committees; the

Secretary of Agriculture; and the Director, Office of Management and

Budget. We will also make copies available to others on request.

Please call me at (202) 512-5138 if you or your staff have any questions

about this report. Major contributors to this report are listed in appendix

VIII.

Sincerely yours,

Lawrence J. Dyckman

Director, Food and

 Agriculture Issues

Page 10 GAO/RCED-99-35 Similarities of USDA’s Activities
Page 11 GAO/RCED-99-35 Similarities of USDA’s Activities
Contents

Letter 1

Appendix I 

Food Safety Mission

Area

16

Appendix II 

Natural Resources

and Environment

Mission Area

17

Similar Activities at the Forest Service and Other Agencies 17

Similar Activities at the Natural Resources Conservation Service

and Other Agencies

17

Appendix III 

Farm and Foreign

Agricultural Services

Mission Area

19

Similar Activities at the Foreign Agricultural Service and Other

Agencies

19

Similar Activities at the Farm Service Agency and Other Agencies 19

Similar Activities at the Risk Management Agency and Other

Agencies

20

Appendix IV 

Rural Development

Mission Area

21

Similar Activities at the Rural Housing Service and Other

Agencies

21

Similar Activities at the Rural Business-Cooperative Service and

Other Agencies

22

Similar Activities at the Rural Utilities Service and Other

Agencies

22

Appendix V 

Research, Education,

and Economics

Mission Area

24

Similar Activities at the National Agricultural Statistics Service

and Other Agencies

24

Similar Activities at the Agricultural Research Service and Other

Agencies

24

Similar Activities at the Cooperative State Research, Education,

and Extension Service and Other Agencies

25

Similar Activities at the Economic Research Service and Other

Agencies

25

Page 12 GAO/RCED-99-35 Similarities of USDA’s Activities
Contents

Appendix VI 

Food, Nutrition, and

Consumer Services

Mission Area

26

Similar Activities at the Food and Nutrition Service and Other

Agencies

26

Similar Activities at the Center for Nutrition Policy and

Promotion and Other Agencies

27

Appendix VII 

Marketing and

Regulatory Programs

Mission Area

28

Similar Activities at the Agricultural Marketing Service and Other

Agencies

28

Similar Activities at the Animal and Plant Health Inspection

Service and Other Agencies

28

Similar Activities at the Grain Inspection, Packers and

Stockyards Administration and Other Agencies

29

Appendix VIII 

Major Contributors to

This Report

30

Figure Figure 1: USDA’s Budget Obligations by Mission Area, Fiscal Year

1997

4

Page 13 GAO/RCED-99-35 Similarities of USDA’s Activities
Contents

Abbreviations

AMS Agricultural Marketing Service

APHIS Animal and Plant Health Inspection Service

ARS Agricultural Research Service

CNPP Center for Nutrition Policy and Promotion

CSREES Cooperative State Research, Education, and Extension

Service

EPA Environmental Protection Agency

ERS Economic Research Service

FAS Foreign Agricultural Service

FCIC Federal Crop Insurance Corporation

FDA Food and Drug Administration

FHA Federal Housing Administration

FNS Food and Nutrition Service

FS Forest Service

FSA Farm Service Agency

FSIS Food Safety and Inspection Service

GIPSA Grain Inspection, Packers and Stockyards Administration

HHS Department of Health and Human Services

HUD Department of Housing and Urban Development

NASA National Aeronautics and Space Administration

NASS National Agricultural Statistics Service

NRCS Natural Resources Conservation Service

RBS Rural Business-Cooperative Service

RHS Rural Housing Service

RMA Risk Management Agency

RUS Rural Utilities Service

USDA U.S. Department of Agriculture

WIC Special Supplemental Nutrition Program for Women, Infants,

and Children

Page 14 GAO/RCED-99-35 Similarities of USDA’s Activities
Page 15 GAO/RCED-99-35 Similarities of USDA’s Activities
Appendix I 

Food Safety Mission Area

The Food Safety Mission Area includes the Food Safety and Inspection

Service (FSIS). This mission area represented 1 percent of USDA’s fiscal year

1997 budget.

FSIS’ mission is to ensure that meat, poultry, and egg products are

wholesome, unadulterated, and properly labeled and packaged. FSIS

conducts inspections at meat, poultry, and other processing plants. The

U.S. Department of Agriculture (USDA) has been involved in food safety

since the late 1800s, when it began investigating food adulteration. Many

FSIS activities originated with the Meat Inspection Act of 1906, which was

passed in response to unsanitary conditions in meat-packing houses.

The Food and Drug Administration (FDA) also conducts inspections at food

processing plants—except for most meat and poultry plants—to ensure

that food products are safe, sanitary, nutritious, wholesome, and are

honestly labeled. We have reported that this division of responsibility is

ineffective and inefficient and have recommended the formation of a

single food safety agency. On August 25, 1998, the President issued an

Executive Order establishing a President’s Council on Food Safety to

develop a comprehensive strategic plan for federal food safety activities,

including a coordinated food safety budget.

For further information, see Food Safety: Weak and Inconsistently Applied

Controls Allow Unsafe Imported Food to Enter U.S. Commerce

(GAO/T-RCED-98-271, Sept. 10, 1998); Food Safety: Opportunities to Redirect

Federal Resources and Funds Can Enhance Effectiveness (GAO/RCED-98-224,

Aug. 6, 1998); Food Safety: Federal Efforts to Ensure Imported Food

Safety Are Inconsistent and Unreliable (GAO/T-RCED-98-191, May 14, 1998);

Food Safety: Federal Efforts to Ensure the Safety of Imported Foods Are

Inconsistent and Unreliable (GAO/RCED-98-103, Apr. 30, 1998); and Food

Safety: Fundamental Changes Needed to Improve the Nation’s Food Safety

System (GAO/T-RCED-98-24, Oct. 8, 1997).

Page 16 GAO/RCED-99-35 Similarities of USDA’s Activities
Appendix II 

Natural Resources and Environment

Mission Area

The Natural Resources and Environment Mission Area is composed of the

Forest Service (FS) and the Natural Resources Conservation Service

(NRCS). This mission area represented 6 percent of USDA’s fiscal year 1997

budget.

Similar Activities at

the Forest Service and

Other Agencies

FS’ mission is to sustain the health, productivity, and diversity of the

nation’s forests and rangelands. FS uses multiple-use management of these

lands to produce sustained yields for renewable resources such as wood,

water, forage, and wildlife, and to provide recreation to meet the diverse

needs of people. FS also conducts research, provides assistance to state

and private landowners, assesses the nation’s natural resources, and

provides international assistance and scientific exchanges. FS was formed

in 1905 when the jurisdiction over the National Forests was transferred

from the Department of the Interior to USDA.

The Bureau of Land Management, the Fish and Wildlife Service, and the

National Park Service—all within the Department of the Interior—perform

some land management activities that have become similar over time to

those conducted by FS, as we have reported. Because the agencies perform

numerous similar activities and have complex and sometimes conflicting

laws governing their land management activities, we have concluded that

improving the efficiency and effectiveness of land management activities

could occur either by combining agencies or by streamlining the existing

structure through the coordination and integration of functions, activities,

and field locations.

For further information, see Forest Service Decision-Making: A

Framework for Improving Performance (GAO/RCED-97-71, Apr. 29, 1997);

Federal Land Management: Streamlining and Reorganization Issues

(GAO/T-RCED-96-209, June 27, 1996); Ecosystem Management: Additional

Actions Needed to Adequately Test a Promising Approach (GAO/RCED-94-111,

Aug. 16, 1994).

Similar Activities at

the Natural Resources

Conservation Service

and Other Agencies

NRCS’ mission is to assist farmers and ranchers in protecting soil, water,

and related resources while sustaining the profitable production of food

and fiber. The activities of NRCS, formerly the Soil Conservation Service,

include providing technical assistance to individuals; communities;

watershed groups; tribal governments; federal, state and local agencies;

and others. NRCS also develops conservation standards, which are

specifications and guidelines to ensure that the conservation systems

Page 17 GAO/RCED-99-35 Similarities of USDA’s Activities
Appendix II 

Natural Resources and Environment

Mission Area

recommended to landowners and communities nationwide are technically

sound.

The Department of the Interior’s Bureau of Reclamation performs some

activities similar to NRCS’. The Bureau’s activities include the management,

development, and protection of water and related resources. In addition,

we have reported that 72 federal programs directly or indirectly support

water quality protection, including the Environmental Quality Incentives

Program, administered by NRCS, which provides cost-share payments to

landowners for, among other things, the protection of water and related

resources.

For further information, see Water Quality: A Catalog of Related Federal

Programs (GAO/RCED-96-173, June 19, 1996).

Page 18 GAO/RCED-99-35 Similarities of USDA’s Activities
Appendix III 

Farm and Foreign Agricultural Services

Mission Area

The Farm and Foreign Agricultural Services Mission Area includes the

Foreign Agricultural Service (FAS), the Farm Service Agency (FSA), and the

Risk Management Agency (RMA). This mission area represented 27 percent

of USDA’s fiscal year 1997 budget.

Similar Activities at

the Foreign

Agricultural Service

and Other Agencies

FAS’ mission is to serve U.S. agriculture’s interests by expanding export

opportunities for U.S. agricultural, fish, and forest products and promoting

world food security. Established as an agency in 1953, FAS administers a

variety of export promotion, technical, and food assistance programs

around the world in cooperation with other federal, state, and local

agencies as well as private sector and international organizations. FAS also

collects, analyzes, and disseminates agricultural information about global

supply and demand, trade trends, and emerging market opportunities.

The Department of Commerce’s International Trade Administration and

the U.S. Trade and Development Agency perform some activities similar to

FAS’. The International Trade Administration promotes U.S. exports and

U.S. businesses’ access to foreign markets on behalf of all U.S. business

interests, not just agriculture. The Trade and Development Agency assists

in creating jobs for Americans by helping U.S. companies pursue overseas

business opportunities, including agriculture. We have reported that

federal export activities are fragmented among several agencies and could

better serve the nation’s business interests through closer cooperation.

USDA is part of an interagency Trade Promotion Coordinating Committee,

along with the Departments of State and Commerce, that has been charged

with developing a governmentwide strategic plan for strengthening federal

services to promote exports.

For further information, see Export Promotion: Governmentwide Plan

Contributes to Improvements (GAO/T-GGD-94-35, Oct. 26, 1993); Export

Promotion: Initial Assessment of Governmentwide Strategic Plan

(GAO/T-GGD-93-48, Sept. 29, 1993); Export Promotion: Governmentwide

Strategy Needed for Federal Programs (GAO/T-GGD-93-7, Mar. 25, 1993).

Similar Activities at

the Farm Service

Agency and Other

Agencies

FSA’s mission is to ensure the well-being of American agriculture and the

American public through the administration of programs for farm

commodities, farm loans, conservation, emergency assistance, and

domestic and international food assistance. A number of these programs

can be traced to the Great Depression, when many farmers were struggling

to survive financially, in part because high productivity was lowering the

Page 19 GAO/RCED-99-35 Similarities of USDA’s Activities
Appendix III 

Farm and Foreign Agricultural Services

Mission Area

prices they received for their crops. These programs were designed to help

raise agricultural prices, increase farm income, and improve the quality of

life in rural America.

While most of FSA’s activities are not similar to those of other federal

agencies, its farm lending services are in some ways similar to those of the

Farm Credit System. The Farm Credit System is a federally chartered

network of borrower-owned lending institutions and related service

organizations. These lending institutions specialize in providing

credit-related services to creditworthy farmers, ranchers, and producers.

FSA lends to farmers who do not qualify for loans from the Farm Credit

System and other commercial lenders.

In addition, the Federal Emergency Management Agency and the Small

Business Administration conduct some similar disaster assistance

activities, but their clientele are different. The Federal Emergency

Management Agency provides low-interest loans following natural

disasters to cover expenses not covered by state or local programs or

private insurance. Similarly, the Small Business Administration has several

programs to help businesses and homeowners recover from disasters. For

example, its Economic Injury Disaster Loans program provides working

capital to small businesses and agricultural cooperatives to assist them in

recovering from disasters.

Similar Activities at

the Risk Management

Agency and Other

Agencies

RMA’s mission is to provide and support cost-effective means for managing

risk for agricultural producers in order to improve the economic stability

of agriculture. RMA provides producers with a variety of crop and revenue

insurance programs through the Federal Crop Insurance Corporation

(FCIC). These programs are offered primarily through private companies

that contract with and are reinsured by FCIC. Typically, federal crop

insurance covers unavoidable production losses resulting from any

adverse weather conditions, including drought, excessive rain, hail, wind,

hurricanes, tornadoes, and lightning. In some cases, it also covers

unavoidable losses as a result of insect infestation, plant disease, floods,

fires, and earthquakes.

While other federal agencies provide other types of insurance, such as

flood insurance, no other federal agencies provide crop insurance.

Page 20 GAO/RCED-99-35 Similarities of USDA’s Activities
Appendix IV 

Rural Development Mission Area

The Rural Development Mission Area consists of the Rural Housing

Service (RHS), Rural Business-Cooperative Service (RBS), and the Rural

Utilities Service (RUS). This mission area represented 13 percent of USDA’s

fiscal year 1997 budget.

Similar Activities at

the Rural Housing

Service and Other

Agencies

RHS’ mission is to enhance the quality of life in rural America and help

build competitive, vibrant rural communities through its community

facilities and housing programs. RHS administers direct and guaranteed

housing loan programs for moderate- and low-income rural residents, as

well as grants to public and quasi-public organizations, nonprofit

associations, and certain Indian tribes, for essential community facilities,

such as health care, public safety, and public service. With the passage of

the Housing Act of 1949, USDA was authorized to provide loans to help

farmers build or repair houses and other farm buildings. Over time, the act

has been amended to authorize housing loans and grants to rural residents

in general.

The Department of Housing and Urban Development (HUD) and the

Department of Veterans Affairs conduct some activities similar to RHS’.

While all these agencies provide affordable housing, their clientele are

somewhat different. For example, HUD provides loans primarily to

individuals in urban areas, Veterans Affairs to veterans, and RHS to rural

communities.13 We have reported that although a number of other federal

programs share HUD’s mission to assist households that may be

underserved by the private market, none reach as many households as

HUD’s Federal Housing Administration.

For further information, see Rural Housing Programs: Opportunities Exist

for Cost Savings and Management Improvement, (GAO/RCED-96-11, Nov. 16,

1995); Homeownership: FHA’s Role in Helping People Obtain Home

Mortgages, (GAO/RCED-96-123, Aug. 13, 1996).

13An Office of Rural Housing and Economic Development was established in HUD by the Department

of Veterans Affairs and Housing and Urban Development, and Independent Agencies Appropriations

Act of 1999. The purpose of this office is to support innovative housing and economic development

activities in rural areas.

Page 21 GAO/RCED-99-35 Similarities of USDA’s Activities
Appendix IV 

Rural Development Mission Area

Similar Activities at

the Rural

Business-Cooperative

Service and Other

Agencies

RBS’ mission is to provide leadership in building competitive businesses

and sustainable cooperatives that can prosper in the global marketplace.

RBS invests its financial resources and technical assistance in businesses

and cooperatives and builds partnerships to leverage public, private, and

cooperative resources to create jobs and stimulate rural economic activity.

The Department of Commerce’s Economic Development Administration,

HUD, and several independent agencies, such as the Small Business

Administration and the Appalachian Regional Commission, conduct some

activities similar to RBS’. All of these agencies provide loans and/or grants

for the economic development of communities throughout the nation.

However, while the activities of some of these agencies, such as RBS, are

national in scope, others have a more narrowly focused clientele. For

example, the Appalachian Regional Commission supports economic

development only in Appalachia.

For further information, see Economic Development Activities: Overview

of Eight Federal Programs (GAO/RCED-97-193, Aug. 28, 1997); Economic

Development: Limited Information Exists on the Impact of Assistance

Provided by Three Agencies (GAO/RCED-96-103, Apr. 3, 1996); Economic

Development Programs (GAO/RCED-95-251R, July 28, 1995); Rural

Development: Federal Programs That Focus on Rural America and Its

Economic Development (GAO/RCED-89-56R, Jan. 19, 1989); Rural

Development: Availability of Capital for Agriculture, Business, and

Infrastructure (GAO/RCED-97-109, May 27, 1997).

Similar Activities at

the Rural Utilities

Service and Other

Agencies

RUS’ mission is to serve a leading role in improving the quality of life in

rural America by administering its electric, telecommunications, and water

and waste programs. RUS’ activities include providing loans and grants

primarily to (1) electric and telephone cooperatives to deliver electric and

telecommunications services to rural areas and (2) public bodies and

nonprofit associations to provide water and waste water disposal. These

activities originated in the 1930s when only 13 percent of U.S. farms had

electricity, only 34 percent had any form of telephone service, and many

rural communities did not have safe drinking water.

A number of other federal agencies provide some similar

telecommunications and wastewater activities to support rural

communities. The Departments of Commerce, Defense, Education, Health

and Human Services (HHS), Justice, and Veterans Affairs, as well as the

National Aeronautics and Space Administration (NASA), National Science

Page 22 GAO/RCED-99-35 Similarities of USDA’s Activities
Appendix IV 

Rural Development Mission Area

Foundation, and Appalachian Regional Commission conduct or sponsor

telecommunications activities, including distance learning and/or

telemedicine initiatives; and EPA, HUD, HHS, and Commerce provide federal

funding and technical assistance to help small communities plan, design,

and build water and wastewater systems. In addition, although not in the

form of federal assistance, the Department of Energy’s Power Marketing

Administrations—such as the Bonneville Power Administration—and the

Tennessee Valley Authority sell electricity to rural communities. We

previously reported that in December 1995 at least 28 federal programs

administered by 15 federal agencies provided funds that were either

specifically designated for telecommunication projects in rural areas or

could be used for that purpose. In 1995, we reported that 17 different

programs administered by eight federal agencies provided funds that were

designed specifically for, or that could be used by, rural areas for

constructing, expanding, or repairing water and wastewater facilities.

For further information, see Rural Development: Financial Condition of

the Rural Utilities Service’s Loan Portfolio (GAO/RCED-97-82, Apr. 11, 1997);

Rural Utilities Service: Opportunities to Operate Electricity and

Telecommunications Loan Programs More Effectively (GAO/RCED-98-42, Jan.

21, 1998); Federal Electricity Activities: The Federal Government’s Net

Cost and Potential for Future Losses, Volumes 1 and 2 (GAO/AIMD-97-110 and

GAO/AIMD-97-110A, Sept. 19, 1997); Rural Development: Steps Towards

Realizing the Potential of Telecommunications Technologies

(GAO/RCED-96-155, June 14, 1996); Rural Development: Patchwork of Federal

Water and Sewer Programs Is Difficult to Use (GAO/RCED-95-160BR), Apr. 13,

1995); Telemedicine: Federal Strategy Is Needed to Guide Investments

(GAO/NSIAD/HEHS-97-67, Feb. 14, 1997).

Page 23 GAO/RCED-99-35 Similarities of USDA’s Activities
Appendix V 

Research, Education, and Economics

Mission Area

The Research, Education, and Economics Mission Area includes the

National Agricultural Statistics Service (NASS), the Agricultural Research

Service (ARS), the Cooperative State Research, Education, and Extension

Service (CSREES), and the Economic Research Service (ERS). This mission

area represented 3 percent of USDA’s fiscal year 1997 budget.

Similar Activities at

the National

Agricultural Statistics

Service and Other

Agencies

NASS’ mission is to serve U.S. agriculture and its rural communities by

providing objective statistical information and services. NASS collects and

disseminates agricultural statistics, including the Census of Agriculture.

NASS carries out many of its activities with the support of state

departments of agriculture, land-grant universities, and the agricultural

industry through cooperative agreements that provide financial support

and are also designed to prevent duplication of effort in acquiring data

from farmers and in setting estimates of states’ agricultural production.

At least 10 other agencies in the federal government (including ERS within

USDA) conduct some activities related to statistics. We have reported that

while this decentralized system contributes to inefficiency, the

consolidation of this function could result in diminished responsiveness to

some customers and possible objections to the concentration of data in a

single agency.

For further information, see Statistical Agencies: Consolidation and

Quality Issues (GAO/T-GGD-97-78, Apr. 9, 1997).

Similar Activities at

the Agricultural

Research Service and

Other Agencies

ARS, USDA’s principal in-house research agency, has as its primary mission

conducting research to develop and transfer solutions to agricultural

problems of high national priority. The research is designed to (1) ensure

the quality and safety of food and other agricultural products, (2) assess

the nutritional needs of Americans, (3) sustain a competitive agricultural

economy, (4) enhance the natural resource base and the environment, and

(5) provide economic opportunities for rural citizens, communities, and

society as a whole.

While other federal agencies—the Departments of Commerce, Defense,

Energy, HHS, the Interior, and Transportation, and EPA, and NASA—conduct

research activities, none perform similar agricultural research activities. In

a 1995 review of federal research laboratories, we found 515 separate

federal research and development laboratories, including those operated

by contractors, in 17 federal departments and agencies. USDA reported the

Page 24 GAO/RCED-99-35 Similarities of USDA’s Activities
Appendix V 

Research, Education, and Economics

Mission Area

largest number of laboratories (185). However, laboratories for Defense,

Energy, HHS, and NASA accounted for 88 percent of the funding.

For further information, see Federal R & D Laboratories

(GAO/RCED/NSIAD-96-78R, Feb. 29, 1996).

Similar Activities at

the Cooperative State

Research, Education,

and Extension Service

and Other Agencies

Unlike ARS, which performs research, CSREES administers grants for

agricultural research, extension and higher education at colleges,

universities, and other institutions—both public and private—around the

nation. CSREES provides funding to scientists to support research on such

matters as biological, environmental, physical, and social sciences relevant

to agriculture and food and the environment.

We have reported that CSREES provides research funds for activities, such

as water quality protection and/or enhancement, that other federal

agencies are involved in.

For further information, see Water Quality: A Catalog of Related Federal

Programs (GAO/RCED-96-173, June 19, 1996).

Similar Activities at

the Economic

Research Service and

Other Agencies

ERS’ mission is to provide economic analysis on issues related to

agriculture, food, the environment, and rural development to assist public

and private decision makers. ERS’ mission has its antecedents in USDA’s

efforts in the early 1900s to examine farm management issues, reflecting a

new interest in economic questions relating to agriculture.

Other federal agencies conduct economic analysis. However, ERS is the

primary agency that analyzes agricultural activities.

Page 25 GAO/RCED-99-35 Similarities of USDA’s Activities
Appendix VI 

Food, Nutrition, and Consumer Services

Mission Area

This mission area includes the Food and Nutrition Service (FNS), which

administers 15 domestic food assistance programs, and the Center for

Nutrition Policy and Promotion (CNPP), which coordinates nutrition policy

in USDA. This mission area represented 47 percent of USDA’s fiscal year 1997

budget.

Similar Activities at

the Food and

Nutrition Service and

Other Agencies

FNS’ mission is to provide children and needy families with access to a

more healthful diet through its food assistance programs and nutrition

education. To carry out this mission, FNS administers 15 separate domestic

food assistance programs—the largest being the Food Stamp Program,

which provides employment and training as well as nutrition

assistance—in partnership with the states.

HHS conducts some similar food assistance and nutrition activities. For

example, HHS’ Maternal and Child Health Bureau provides nutrition

education activities that are similar to FNS’ program—the Special

Supplemental Nutrition Program for Women, Infants, and Children (WIC).

Both agencies provide funding to the states to meet the nutritional and

developmental needs of mothers and children.

In addition, both HHS and FNS conduct similar activities to improve the

nutrition of the elderly. FNS provides subsidies—cash and/or commodity

food reimbursements—to nutrition programs that provide meals to the

elderly in a group setting or in their home, while HHS, for the most part,

administers the program and provides most of the funding for these

programs. We previously reported that one alternative to reducing costs

and streamlining operations in USDA would be to consolidate the meal

programs for the elderly in HHS, thereby giving the funding responsibility to

the agency that provides the most funding and has overall oversight

responsibilities for meal programs for the elderly.

Furthermore, like FNS’ Food Stamp Program, other federal programs

provide employment and training programs. These programs include, for

example, HHS’ Temporary Assistance for Needy Families, the Department

of Labor’s Job Training Partnership Act Program, and HUD’s Family

Self-Sufficiency Program. We have reported that one way to reduce the

cost of the Food Stamp Program would be to eliminate its employment

and training component since the services could be provided by other

existing employment and training programs.

Page 26 GAO/RCED-99-35 Similarities of USDA’s Activities
Appendix VI 

Food, Nutrition, and Consumer Services

Mission Area

For further information, see Food Assistance: USDA’s Multiprogram

Approach (GAO/RCED-94-33, Nov. 24, 1993); Food Assistance Programs

(GAO/RCED-95-115R, Feb. 28, 1995); Multiple Employment Training Programs:

Major Overhaul Needed to Create a More Efficient, Customer-Driven

System (GAO/T-HEHS-95-70, Feb. 6, 1995).

Similar Activities at

the Center for

Nutrition Policy and

Promotion and Other

Agencies

CNPP is responsible for improving the nutritional status of Americans by

serving as the focal point within USDA for linking scientific research to the

consumer. CNPP develops and coordinates nutrition policy within USDA,

assesses the cost-effectiveness of government-sponsored nutrition

programs, periodically reports on the cost of family food plans and of

raising children, investigates techniques for communicating effectively

with Americans about nutrition, and evaluates the nutrient content of the

U.S. food supply.

While other federal agencies conduct, or contract to conduct, nutrition

research projects, CNPP actually translates nutrition research into materials

for health professionals, corporations, and consumers.

For further information, see Food Assistance: Information on USDA’s

Research Activities (GAO/RCED-98-56R, Jan. 29, 1998).

Page 27 GAO/RCED-99-35 Similarities of USDA’s Activities
Appendix VII 

Marketing and Regulatory Programs Mission

Area

The Marketing and Regulatory Programs Mission Area consists of three

agencies—Agricultural Marketing Service (AMS), Animal and Plant Health

Inspection Service (APHIS), and Grain Inspection, Packers and Stockyards

Administration (GIPSA). This mission area represented about 2 percent

USDA’s fiscal year 1997 budget.

Similar Activities at

the Agricultural

Marketing Service and

Other Agencies

AMS’ mission is to facilitate the strategic marketing of agricultural products

in domestic and international markets, ensure fair trading practices, and

promote a competitive and efficient marketplace to the benefit of

producers, traders, and consumers of U.S. food and fiber products. To

carry out its mission, AMS engages in a number of activities, such as

collecting and disseminating time-sensitive agricultural market

information, grading and certifying the quality of agricultural commodities,

overseeing industry-financed research and promotion programs,

implementing national organic production and labeling standards, and

administering the milk marketing order program. The agency also

administers a regulatory program covering dealers in the fruit and

vegetable industry to promote fair trading.

Three other federal agencies perform some activities similar to AMS’. The

National Marine Fisheries Service in the Department of Commerce

conducts, on a fee-for-service basis, a voluntary seafood inspection and

grading program that focuses on marketing and the quality attributes of

U.S. fish and shellfish. The National Institute of Standards and

Technology, also in the Department of Commerce, promotes overall U.S.

economic growth by working with industry to develop and apply

technology, measurements, and standards, although it has no specific

responsibilities in the agricultural area, and it does not provide grading

services as AMS does. The Federal Trade Commission, an independent

agency, also administers regulatory programs to promote fair trading

practices, but its programs are aimed at protecting consumers rather than

dealers.

Similar Activities at

the Animal and Plant

Health Inspection

Service and Other

Agencies

APHIS’ mission is to anticipate and respond to issues involving animal and

plant health, conflicts with wildlife, environmental stewardship, and

animal well-being. APHIS regulates the import of agricultural products into

the United States to reduce the risk posed by exotic pests and diseases;

monitors animal and plant health to detect endemic and exotic diseases

and pests; conducts regulatory activities to ensure the humane care of

animals used in research, exhibition, or the wholesale pet trade; provides

Page 28 GAO/RCED-99-35 Similarities of USDA’s Activities
Appendix VII 

Marketing and Regulatory Programs Mission

Area

federal leadership in managing problems caused by animal pests and

diseases and wildlife; and ensures that veterinary biological products are

safe, pure, potent, and effective. Its core functions and activities originated

in the 1880s after outbreaks of contagious animal diseases led to the

barring of U.S. meat from some European markets.

FDA’s Center for Veterinary Medicine evaluates and approves animal drug

products to protect animal and human health.

Similar Activities at

the Grain Inspection,

Packers and

Stockyards

Administration and

Other Agencies

GIPSA, which is made up of the former Federal Grain Inspection Service

and the former Packers and Stockyards Administration, has as its mission

facilitating the marketing of livestock, poultry, meat, cereals, oilseeds, and

related agricultural products and the promotion of fair and competitive

trading practices for the overall benefit of consumers and American

agriculture. GIPSA sets quality standards, provides inspection and weighing

services, and enforces the Packers and Stockyards Act. This act protects

members of the livestock, poultry, and meat industries against unfair or

monopolistic practices. It also protects consumers against unfair business

practices in the marketing of meats and poultry.

Two other federal agencies perform some activities similar to GIPSA’s. As

discussed earlier, the Department of Commerce’s National Institute of

Standards and Technology promotes overall U.S. economic growth by

working with industry to develop and apply technology, measurements,

and standards, but it has no specific responsibilities in the agricultural

area and does not carry out actual weighing and grading activities as does

GIPSA. The Federal Trade Commission also enforces laws to prevents fraud,

deception, and unfair business practices in the marketplace and to prevent

anticompetitive mergers and other anticompetitive business practices in

the marketplace, activities that are similar to the packers and stockyards

activities performed by GIPSA.

Page 29 GAO/RCED-99-35 Similarities of USDA’s Activities
Appendix VIII 

Major Contributors to This Report

Ronald E. Maxon, Jr., Assistant Director

Fred Light

Renee McGhee-Lenart

Paul Pansini

Carol Herrnstadt Shulman

Janice Turner

(150749) Page 30 GAO/RCED-99-35 Similarities of USDA’s Activities
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