Natural Resources Conservation Service

U.S. DEPARTMENT OF AGRICULTURE

NRCS Equity

Action Plan

Fiscal Years 2022-2026

‘Looking through the lens of others’

SEPTEMBER 2022

nrcs.usda.gov

2 NRCS Equity Action Plan

NRCS Equity Action Plan Fiscal Years 2022-2026

‘Looking through the lens of others’

Chief Terry J. Cosby of the USDA Natural Resources 

Conservation Service (NRCS) has pledged the 

Agency’s commitment to create and sustain a 

culture that operates in accordance with a value for 

equity. Since NRCS’ establishment, unfortunately, 

underserved communities and individuals have 

experienced significant barriers to equity, equality, 

and justice in agency programs and policies. 

NRCS acknowledges that these inequalities and 

impediments have denied equitable services to 

many of our citizens. To achieve equity, NRCS 

will strive to remove and dismantle those barriers 

and inequities by creating and following a trail of 

equitable opportunity for all.

In October 2021, Chief Cosby established the 

agency’s first ever Equity Division. The NRCS Equity 

Division, led by Vivian Dickson, operates under the 

following Mission, Vision, and Core Values:

MISSION: Advocate for and better align 

institutional equity into the work and practices 

of NRCS to ensure that every USDA-NRCS 

customer is put in a position to succeed in a 

diverse government world and notably feel 

inclusiveness to agency programs and services.

VISION: Diversity and inclusion for every 

customer through our programs.

CORE VALUES: Believing that NRCS customers’ 

opportunities and benefits of agency programs 

are strengthened when working towards the 

common good and goals by improving agency 

program outreach, NRCS improves customers’ 

equity and equality of life through conservation 

opportunities and benefits.

NRCS is committed to advancing equity, justice, 

and opportunity for agency employees and those 

we serve. In reducing and eliminating barriers and 

inequities, NRCS’ unflinching actions will advance 

equal access to opportunities and resources for 

underserved communities, embrace diversity and 

inclusion internally and externally, and ensure an 

equity minded, well trained, and diverse workforce 

committed to equal opportunity.

The NRCS Equity Action Plan aligns with the USDA 

Strategic Plan for fiscal years 2022-2026 and the 

USDA Equity Action Plan, as those are enterprise 

strategies with specific equity initiatives and actions. 

The NRCS Equity Action Plan provisions set forth a 

well-defined roadmap for strategy execution and a 

framework to meet the agency’s equity operations 

short- and long-term goals and objectives.

Strategic Goal 1: Organizational Capacity for Equity

Strategic Goal 2: Equity Toolkits

Strategic Goal 3: Equity and Inclusion Data

Strategic Goal 4: Equity and Inclusion Partnerships

Strategic Goal 5: Operationalize Equity

“ NRCS advances Equity by 

sustaining fairness in the way we 

deliver our programs, services, 

and technical assistance, within 

agency policies and practices.

- NRCS Chief Terry J. Cosby

”
NRCS Equity Action Plan 3

NRCS Equity Action Plan Fiscal Years 2022-2026

‘Looking through the lens of others’

TABLE OF CONTENTS

Executive Summary: ‘Looking through the lens of others’.................................................................................2

Introduction: Prelude to Equity.....................................................................................................................................4

Strategic Goal 1: Organizational Capacity for Equity............................................................................................6

Strategic Goal 2: Equity Toolkit.....................................................................................................................................8

Strategic Goal 3: Equity and Inclusion Data............................................................................................................10

Strategic Goal 4: Equity and Inclusion Partnerships............................................................................................11

Strategic Goal 5: Operationalize Equity....................................................................................................................13

Summary of Accomplishments Fiscal Year 2022 - Advancing Equity..........................................................14

APPENDIX A: Glossary of Equity Key Terms..........................................................................................................19

APPENDIX B: Resources.................................................................................................................................................21

USDA Nondiscrimination Statement.........................................................................................................................22

“ Not everything that is faced can be changed, 

but nothing can be changed until it is faced.

- James Baldwin

”
4 NRCS Equity Action Plan

Prelude to Equity

On his first day in office, January 20, 2021, President Biden signed Executive Order 13985, Advancing Racial 

Equity and Support for Underserved Communities Through the Federal Government. Executive Order 

13985 recognized that although the ideal of equal opportunity is the bedrock of American democracy, 

entrenched disparities in our laws, public policies, and institutions too often deny equal opportunity to 

individuals and communities. The Executive Order emphasized the enormous human costs of systemic 

racism, persistent poverty, and other disparities, and directed the Federal Government to advance an 

ambitious whole-of-government equity agenda that matches the scale of the challenges we face as a 

country and the opportunities we have to build a more perfect union.

It is policy of President Biden’s Administration that the Federal Government should pursue a comprehensive 

approach to advancing equity for all, including people of color and others who have been historically 

underserved, marginalized, and adversely affected by persistent poverty and inequality. Affirmatively 

advancing equity, civil rights, racial justice, and equal opportunity is the responsibility of the whole of our 

Government. Because advancing equity requires a systematic approach to embedding fairness in decisionmaking processes, executive departments and agencies must recognize and work to redress inequities in 

their policies and programs that serve as barriers to equal opportunity.

In response to Executive Order 13985, USDA took immediate action to advance equity. USDA staff offices 

and mission areas were directed to coordinate and develop their respective key actions to comprehensively 

incorporate equity into farm, family, and food programs. As a result, the USDA Equity Action Plan was 

developed, detailing bold equity actions that USDA has chosen to implement and highlight because of 

their potential high impacts for underserved farmers and ranchers, families and children, and communities. 

The USDA Equity Action Plan aims to make USDA programs beneficial to all regardless of circumstances, 

particularly for those who have been left behind. The Plan commits USDA to taking aggressive action to 

advance equity and justice with a four-pronged approach:

• Challenging USDA offices and mission areas, based on stakeholder input and internal equity 

assessments, to identify actions that will build and maintain trust, reduce barriers to access, and 

increase investments toward underserved communities

• Looking inward to understand what it will take to build an organization that centers diversity, 

equity, inclusion, and accessibility (DEIA), beginning with creation of the USDA Equity Action Plan 

and hiring a Chief Diversity and Inclusion Officer

• Establishing an Equity Commission comprised of external stakeholders

• Implementing the debt relief provision in Section 1005 of the American Rescue Plan Act (ARPA)

In addition, the following is a summary of high impact actions USDA is taking to advance equity:

• Partner with trusted technical assistance providers

• Reduce barriers to programs and improve support to underserved farmers, ranchers, and landowners

• Expand equitable access to USDA nutrition assistance programs

• Increase USDA infrastructure investments that benefit underserved communities

• Advance equity in federal procurement

• Uphold Federal Trust and Treaty Responsibilities to Indian Tribes

• An unwavering commitment to civil rights
NRCS Equity Action Plan 5

In alignment with the direction of Executive Order 13985 and the USDA Equity Action Plan, the NRCS 

Equity Action Plan was developed using a framework to advance equity in the culture of NRCS and to act 

with unflinching commitment to institutional transformation. That framework forms an approach to longlasting, transformational change that is built upon:

AWARENESS: Building equity awareness and analytical capacity across NRCS, fostering common 

understanding of key concepts such as: equity and inequity; implicit and explicit bias; individual, 

institutional, and systemic racism.

CAPACITY BUILDING: Recruiting and developing leadership, staff, and stakeholders with the tools, 

strategies, and resources to be effective in fostering implicit equity education that will provide 

successful outcomes for equity, justice, and opportunity.

ACTION: Engaging in methodical messaging to combat equity barriers and biases. Implementing 

equitable sustainability practices that change the scope of NRCS program processes, access, and 

participation. Organizing advance, deliberate, and intentional changes to NRCS policy, processes, 

and practices with fair equity intent.

Upon this framework, the NRCS Equity Action Plan describes five strategic goals.

Strategic Goal 1: Organizational Capacity for Equity – Enact changes throughout the breadth and 

organizational depth of NRCS, from the National Headquarters level to the Local level, for training and 

infrastructure to build employee understanding about equity goals and to create equity and inclusion 

experts and teams across the Agency.

Strategic Goal 2: Equity Toolkits – Institutionalize use of Equity Toolkits to integrate equity into decisionmaking processes to change policies, programs, and practices as necessary to eliminate inequities, to 

prevent decisions that may create or perpetuate inequities, and to develop decisions that promote 

advancement of equity.

Strategic Goal 3: Equity and Inclusion Data – Implement strategic data planning and develop datadriven measurements to evaluate the success of specific programmatic and policy changes by developing 

baselines, setting objectives, and measuring progress toward NRCS and community goals.

Strategic Goal 4: Equity and Inclusion Partnerships – Work in collaboration with communities and other 

institutions at the National, Regional, State, and Local levels to ensure NRCS efforts for change are informed 

by the lived experiences of communities that changes seek to benefit.

Strategic Goal 5: Operationalize Equity – Communicate and act with urgency to incorporate institutional 

mechanisms for required continuance of education, transparency, and accountability to eliminate program, 

policy, and service inequities.
6 NRCS Equity Action Plan

1 Strategic Goal 1: Organizational Capacity for Equity

Public service organizations must adapt constantly in order to operate and comply with statutory standards. 

When statutes and authorities are implemented, changed, modified, or altered, successful transformation 

will be determined within an organization if an entity endures certain uncertainties and disturbances such 

as administration and leadership shifts, budgets, human resources, and technology. President Biden made 

equity and justice a top priority for the Federal Government. Equity and justice government requirements 

impact the way the Federal Government must do business. NRCS, from agency leadership to the local 

level, will be a champion of equity operating requirements. The Agency will accomplish this by researching 

its ability to change the culture and enhance communications to a high level and by acting with unflinching 

commitment to institutional transformation. The workforce’s collective beliefs, values, behaviors, attitudes, 

performance, customer service, and level of accountability will be key to the equity requirements change.

Strategic Goal 1 has four Priority Actions:

1.1 Form the NRCS Equity Division

1.2 Convey the NRCS Chief’s commitment to the breadth (all program functions and services) 

and organizational depth (NRCS hierarchy) of institutional transformation

1.3 Develop resource materials that clearly identify the history of government to envision and 

operationalize Equity in NRCS, and utilize clear and easily understood definitions of equity 

and inequity, implicit and explicit bias, and individual, institutional, and systemic racism

1.4 Employee Professional Development - Build common Equity understanding and develop 

skill sets for all NRCS employees

Strategic Goal 1: Organizational Capacity for Equity • “Organizational capacity,” in this context, refers to 

the potential that NRCS conservation programs and services delivery systems consistently demonstrate 

to be productive and effective. Conservation Program Delivery can realize this potential by developing 

the Agency’s human and organizational assets and using them to successfully implement effective 

policies, programs, and practices. These assets include, but are not limited to, fiscal resources, processes, 

institutional knowledge, leadership, and internal and external relationships. To build organizational capacity, 

NRCS’ jurisdictions must be committed to the breadth (all functions) and depth (throughout hierarchy) 

of institutional transformation. While agency leadership, top officials, and elected members for partners 

and stakeholders support is critical, changes ultimately take place on the ground. Thus, infrastructure that 

creates equity experts and teams throughout Local, State, Regional, and National levels is prudent.

Priority Action 1.1: Form the NRCS Equity Division

1.1a Officially add organizational unit to NRCS org chart

1.1b Recruit and hire Director and staff

1.1c Develop Equity section of NRCS website
NRCS Equity Action Plan 7

Priority Action 1.2: Convey the NRCS Chief’s commitment to the breadth (all program functions and 

services) and organizational depth (NRCS hierarchy) of institutional transformation

1.2a Communicate Agency commitment to Advancing Equity and Support for Underserved 

Communities Through NRCS to all employees:

• Background and Purpose

• Chief’s commitment

• Announcement of requirements to post NRCS Advancing Equity Policy Statement 

and NRCS Equity Poster in all NRCS offices for public view

• Contact information for Equity Division

Priority Action 1.3: Develop resource materials that clearly identify the history of government to 

envision and operationalize Equity in NRCS, and utilize clear and easily understood definitions of 

equity and inequity, implicit and explicit bias, and individual, institutional, and systemic racism

1.3a Create NRCS Equity: standard operating procedure, brochure, and fact sheet

Priority Action 1.4: Employee Professional Development - Build common Equity understanding and 

develop skill sets for all NRCS employees

1.4a Develop Equity and Inclusion required training modules for all NRCS employees (SES 

and Managers; Supervisors; and Non-Supervisory), such as:

• Implicit and Explicit Bias

• Individual, Institutional, and Systemic Racism

• How to utilize equity tools for NRCS programs and policies

• Equity Data Analysis (findings and reporting)

• Outreach Mechanisms for Historically Underserved

“Our workforce and our entire economy 

are strongest when we embrace diversity 

to its fullest, and that means opening doors 

of opportunity to everyone and recognizing 

that the American Dream excludes no one.

- Tom Perez

”
8 NRCS Equity Action Plan

2 Strategic Goal 2: Equity Toolkits

Equity tools are designed to integrate explicit consideration of equity in decisions, including policies, 

practices, programs, and budgets. It is both a product and a process. Use of equity tools can help to develop 

strategies and actions that reduce inequities and improve success for all groups. Too often, policies and 

programs are developed and implemented without thoughtful consideration of equity. When equity is not 

explicitly brought into operations and decision-making, inequities are likely to be perpetuated. Equity tools 

provide a structure for institutionalizing the consideration of equity. An Equity Toolkit1 leverages aspects 

of equity tools to:

• Proactively seek to eliminate inequities and advance equity,

• Identify clear goals, objectives, and measurable outcomes,

• Engage communities in decision-making processes,

• Identify who will benefit or be burdened by a given decision,

• Examine potential unintended consequences of a decision;

• Develop strategies to advance equity and mitigate unintended negative consequences, and

• Develop mechanisms for successful implementation and evaluation of impact.

Strategic Goal 2 has four Priority Actions:

2.1 Develop Equity Toolkits to integrate equity into decision-making processes

2.2 Develop targeted trainings for employees at all organizational levels of NRCS to 

institutionalize use of equity tools

2.3 Program Outreach efforts to reduce or remove barriers to and inequities in NRCS programs 

and services

2.4 Justice40 Initiative (USDA) – program implementation

Strategic Goal 2: Equity Toolkits • USDA has been known to have a ‘checkered’ past of discriminating, 

from systemic discrimination in program design to a failure of properly processing program discrimination 

complaints. NRCS will implement and institutionalize equity tools in decision-making for changes to 

conservation program policies, procedures, and practices that perpetuate inequities. The Agency will also 

utilize equity tools in decision-making for the development of new program policies, procedures, and 

practices. Institutionalizing use of Equity Toolkits will create opportunities to develop thoughtful, realistic 

decisions and implementation plans that advance equity and help to build long-term commitment and 

momentum.

Priority Action 2.1: Develop Equity Toolkits to integrate equity into decision-making processes

2.1a Develop Equity Toolkit for decision-making concerning Program policies and practices

2.1b Develop Equity Toolkit for decision-making concerning Grants and Agreements for 

outreach, procurement, and scientific research

2.1c Develop user manuals and necessary guidance materials for employee application of 

Equity Toolkits

1 https://racialequityalliance.org/wp-content/uploads/2015/10/GARE-Racial_Equity_Toolkit.pdf
NRCS Equity Action Plan 9

Priority Action 2.2: Develop targeted trainings for employees at all organizational levels of NRCS to 

institutionalize use of Equity tools

2.2a Conduct Equity Toolkit trainings for all NRCS employees at National and State levels to 

be available with a readily accessible platform

2.2b Integrate equity resource materials into NRCS business tools for field staff use, 

particularly targeted resources regarding underserved communities in the service areas 

pertinent to field staff for outreach and planning

Priority Action 2.3: Program Outreach efforts to reduce or remove barriers to and inequities in NRCS 

programs and services

2.3a Incorporate Equity Toolkit actions in the States’ and Territorial Areas’ 3-to-5-year 

Program Outreach Plans (see Strategic Goal 4.2)

Priority Action 2.4: Justice40 Initiative (USDA) – program implementation

The Justice40 Initiative sets a goal of delivering 40% of the overall investment benefits from certain 

NRCS conservation programs to underserved communities.

2.4a Program Modification Plan: For each covered program, USDA program teams identify 

actions to increase the benefits of the programs to underserved communities

2.4b Geographic Targeting Methodology: For NRCS applicable programs, Programs Deputy 

Area collaborate with the Equity Division to develop and convey methodology for 

geographically targeting underserved communities per guidance on the use of the CEQ 

Climate and Economic Justice Screening Tool

2.4c Budget: Review the Justice40 implementation plans on the budget prioritizations for 

fiscal years 2022 through 2026

2.4d Stakeholder Engagement: Ongoing stakeholder engagement to inform program 

implementation planning and to garner continuous feedback

2.4e Interagency Collaboration: Coordinate with other federal entities relative to conservation

“If the yam does not grow well, do not blame 

the yam. It is because of the soil.

- Ghanaian proverb

”
10 NRCS Equity Action Plan

3 Strategic Goal 3: Equity and Inclusion Data

An often repeated saying in government is “what gets counted, counts.” Data relating to inequities may 

be available to different extents. What is frequently lacking, though, are strategies for closing gaps and 

tracking progress over time. It is not enough to have data if we do not also use the data at multiple 

levels and track impacts. Data governance is needed to pinpoint problems, form decisions for change, 

deploy resources, track progress, evaluate effectiveness, and justify continued support. Reliable findings 

for Equity and Inclusion assessments result from data-driven measurements and continuous improvement 

in data planning.

Strategic Goal 3 has three Priority Actions:

3.1 NRCS Continuous Improvement Plan for Data-Driven Equity

3.2 Equity and Inclusion Data Catalog

3.3 Establish NRCS metrics to track progress and outcomes according to Equity goals and 

objectives

Strategic Goal 3: Equity and Inclusion Data • NRCS will engage in the Equity process by utilizing conservation 

program and technical assistance data and other data sources as needed to ensure that processes and 

programs are impartial, fair, and provide equal possible outcomes for all applicants, participants, partners, 

and stakeholders. The assurance of such outcomes will levy inclusion by individuals embracing a sense of 

value and reception of ‘Helping People Help the Land.’ NRCS will not just collect data, but catalogue data 

findings for achieving results. There are generally two levels of Equity and Inclusion data measurement: 

the first level measures the success of specific programmatic and policy changes, and the second level of 

measurement is to develop baselines, set goals, and measure progress toward conservation programs and 

technical assistance services initiatives and goals.

Priority Action 3.1: NRCS Continuous Improvement Plan for Data-Driven Equity

3.1a Develop NRCS continuous improvement plan for Equity and Inclusion data in alignment 

with data governance efforts across Agency offices and priorities (Climate Smart 

Agriculture & Forestry, Urban Agriculture & Innovative Production)

Priority Action 3.2: Equity and Inclusion Data Catalog

3.2a Develop an Equity and Inclusion Data Catalog that is inclusive of references and linkages 

between NRCS, FPAC, and USDA datasets and tools

3.2b Incorporate the Equity and Inclusion Data Catalog into NRCS analytics tools and 

appropriate business tools to maximize accessibility and use

3.2c Conduct Data Catalog trainings at National, Regional, and State levels to be available 

with a readily accessible platform

Priority Action 3.3: Establish NRCS metrics to track progress and outcomes according to Equity goals 

and objectives

3.3a Identify 3-to-5-year Equity goals for NRCS major programs, and establish metrics to 

track progress and outcomes

3.3b Utilize data visualization and reporting media (e.g., internal and public-facing dashboards) 

to track and report Equity metrics
NRCS Equity Action Plan 11

4 Strategic Goal 4: Equity and Inclusion Partnerships

Collaboration with internal and external partners, stakeholders, and various communities is paramount 

to the success of advancing equity and removing inequities in NRCS programs, policies, and services. 

Transformation requires that the people experiencing problems are at the center of determining the 

solutions to inequities, rather than experts deciding for them. Local, boots on the ground, regional, and 

national equity work is prudent, but it requires partnership, association, alliance, and cooperation with 

communities to achieve equity.

Strategic Goal 4 has six Priority Actions:

4.1 Identify and define roles of NRCS partners, stakeholders, Tribal entities, Community Based 

Organizations, and other underserved communities and relevant institutions at National, 

Regional, State, and Local levels

4.2 Create and monitor State and Territorial Area 3-to-5-year Program Outreach Plans to align 

with the NRCS Equity Action Plan

4.3 Engage partners, stakeholders, underserved community representatives, and Tribal 

representatives at the decision-making level for shared influence

4.4 Enhance partners’ and stakeholders’ awareness of and clear and consistent understanding 

of Equity and Inclusion within NRCS organizational capacity

4.5 Advance Equity in NRCS Grants, Agreements, and Contracts

4.6 Multi-pronged approach to providing technical assistance to underserved communities - 

Technical Service Providers (TSP) program

Strategic Goal 4: Equity and Inclusion Partnerships • Equitable collaboration with underserved communities is critical to ensuring efforts for change are informed by the lived experiences of individuals and communities those efforts seek to benefit. NRCS will pursue equity as all levels of the agency will be committed 

to working in partnership with communities, partners, stakeholders, and other institutions.

Priority Action 4.1: Identify and define roles of NRCS partners, stakeholders, Tribal entities, Community 

Based Organizations, and other underserved communities and relevant institutions at National, 

Regional, State, and Local levels

4.1a Identify partners that have roles to play in identifying and eliminating barriers and 

inequities in the way NRCS delivers programs, services, and technical assistance

4.1b Create agency-wide awareness of the concept of ‘collective impact’21

 to advance crossinstitutional Equity work and mutually reinforcing activities, internally and externally

Priority Action 4.2: Create and monitor State and Territorial Area 3-to-5-year Program Outreach Plans 

to align with the NRCS Equity Action Plan

4.2a Each State Office develop a Program Outreach Plan (Fiscal Years 2023-2026), to include 

a subsection for Equity and Inclusion planning

4.2b Each State Office appoint and maintain an Outreach Coordinator with collateral duty 

responsibilities

2 The concept of ‘collective impact’ is articulated in the 2011 Stanford Social Innovation Review article Collective Impact by John 

Kania and Mark Kramer. One of the core components of achieving collective impact is “mutually reinforcing activities, which 

proposes that while diverse stakeholders do not have to do the same work in the same way, if goals and metrics are shared, 

the work can have significant cumulative impact.”
12 NRCS Equity Action Plan

Priority Action 4.3: Engage partners, stakeholders, underserved community representatives, and 

Tribal representatives at the decision-making level for shared influence

4.3a Collaborate with underserved community leaders to ensure inclusion in the planning, 

financing, and development of programs and inequity issues

Priority Action 4.4: Enhance partners’ and stakeholders’ awareness of and clear and consistent 

understanding of Equity and Inclusion within NRCS organizational capacity

4.4a Dedicate funding for cooperative agreements with subject matter experts to create and 

deliver Equity and Inclusion trainings for NRCS partner organizations and stakeholders 

at the Regional and State levels

Priority Action 4.5: Advance Equity in NRCS Grants, Agreements, and Contracts

4.5a Implement and roll out a 21.5% small-disadvantaged business (SDB) contracting goal32 

4.5b Tribal Contracting: Participate in USDA review of treaties, authorizing statutes, and 

regulations for expansion of Tribal contracting preferences3

4.5c Target outreach to SDBs by utilizing GSA’s forecast tool and USDA’s small business 

landing page (http://www.usda.gov/smallbiz) to make contracting opportunities more 

easily accessible and understandable3

4.5d Require all NRCS grants, agreements, and contracting units to be equitable in their 

procurement outreach and acquisition strategies

4.5e Participate as needed to deploy new, one-time USDA funds from Section 1006 of the

ARPA via new programming that is designed specifically to fill gaps in existing USDA 

programming and in response to specific, unmet needs that stakeholders have articulated3

Priority Action 4.6: Multi-pronged approach to providing technical assistance to underserved 

communities - Technical Service Providers (TSP) program

4.6a Increase TSP Program participation of providers dedicated to delivering conservation 

technical assistance for historically underserved producers (State Program Outreach 

Plans) - Agency national goal 5%

4.6b Dedicate TSP Program funding for outreach and marketing efforts

3 Specifically aligns with USDA Equity Action Plan goal

“ We all should know that diversity makes for a 

rich tapestry, and we must understand that all 

the threads of the tapestry are equal in value no 

matter what their color.”

- Maya Angelou
NRCS Equity Action Plan 13

5 Strategic Goal 5: Operationalize Equity

Equity and inclusion must be incorporated at every stage of NRCS work and services—personal, team, 

and institutional. Managing change and maintaining support for change require ongoing strategic thinking 

and decision-making. NRCS must move beyond transactional approaches toward transformation by 

developing processes that are transformative and changing structures that may have created barriers to 

equity. Success for equity achievements internally requires clear communication with urgency and a solid 

continuity of strategies throughout the breadth and depth of the organization.

Strategic Goal 5 has four Priority Actions:

5.1 Advance Equity by having a diverse workforce

5.2 Encourage diversity on the State Technical Committees and the Soil and Water Conservation 

District Boards

5.3 Meet program participation parity levels relative to population demographics

5.4 Implement technology enhancements to improve business processes and eliminate 

communication barriers for customers

Strategic Goal 5: Operationalize Equity • NRCS seeks to embed the values of Equity into conservation 

programs, operations, and services. Staff as well as leadership matter in promoting equity internally, as do 

the processes through which customers interact with staff and engage in programs and services.

Priority Action 5.1: Advance Equity by having a diverse workforce

5.1a Recruit and hire diverse staff at all levels of organization

5.2b Meet parity levels identified by the civilian labor force

Priority Action 5.2: Encourage diversity on the State Technical Committees and the Soil and Water 

Conservation District Boards

5.2a Increase diversity by at least 10% on State Technical Committees and Soil and Water 

Conservation District Boards

5.2b Identify State and Local outreach efforts and goals to increase committees’ and boards’ 

diversity (State Program Outreach Plans)

Priority Action 5.3: Meet program participation parity levels relative to population demographics to 

eliminate disparities

5.3a Leverage data from NASS Census of Agriculture, U.S. Census Bureau, and other sources 

as needed to target program outreach to underserved producers and communities

5.3b Identify State and Local outreach and Equity goals (State Program Outreach Plans)

Priority Action 5.4: Implement technology enhancements to improve business processes and eliminate 

communication barriers for customers

5.4a Improve business tools or develop a new tool(s) to improve communication with program 

applicants and participants and increase transparency in the application process41 

5.4b Collaborate with FPAC Civil Rights Division for the Limited English Proficiency Program

4 In the The 2011 Jackson Lewis Report Independent Assessment of the Delivery of Technical and Financial Assistance, recommendation NRCS-13 called for “A consistent protocol should be created and implemented in every field office for tracking 

applications, informing applicants of the status of their application in writing on a regular basis, providing customers with 

reasons as to why they are ineligible for programs or not funded, and providing guidance for future applications.”
14 NRCS Equity Action Plan

Summary of Accomplishments Fiscal Year 2022 - Advancing Equity

Throughout fiscal year 2022, NRCS worked to advance equity and further the agency’s transformation, 

including the following strategic actions.

Organizational Capacity – From the Chief to Service Center staff, NRCS has demonstrated commitment 

across agency functions to creating infrastructure that advances awareness and builds capacity for equity.

NRCS Equity Division – In October 2021, Chief Cosby established the first ever NRCS Equity Division. 

Since the division’s conception, the Chief hired a permanent Equity Division Director, Vivian Dickson, 

and two permanent staff. The Equity Division will soon be fully staffed with six to eight permanent, 

full-time employees. In establishing the Equity Division, NRCS is fulfilling departmental requirements to 

dedicate and provide sufficient resources to administer the agency’s Equity Program responsibilities.

NRCS Equity Policy Statement – Signed by Chief Cosby and disseminated to all NRCS employees, 

the purpose of the NRCS Advancing Equity policy statement is to reaffirm and highlight the agency’s 

commitment and support to the provisions of Executive Order 13985, “Advancing Racial Equity and 

Support for Underserved Communities Through the Federal Government.” The policy statement 

demonstrates the Chief’s commitment as a champion of advancing equity in NRCS. In accordance with 

departmental regulations for public notification requirements, the policy statement ensures a positive 

and continuing notification of NRCS’ equity policy to the public and USDA-NRCS employees. All NRCS 

offices must have the policy statement prominently and visibly displayed (clearly visible to persons 

seeking assistance) and available in language(s) appropriate for the local population.

NRCS Equity Poster – The Equity Division and FPAC External Affairs developed the Equity Poster to 

serve as a good faith action that further demonstrates NRCS commitment and support by creating 

awareness for advancing equity in NRCS programs and services. In accordance with departmental 

regulations for public notification requirements, the poster ensures a positive and continuing notification 

of NRCS’ equity policy to the public and USDA-NRCS employees. All NRCS offices must have the 

poster prominently and visibly displayed (clearly visible to persons seeking assistance) and available in 

language(s) appropriate for the local population.

NRCS Equity Web Presence – The Equity landing page and related webpages serve as an internal 

and external customer service informational tool. To demonstrate the importance of advancing equity, 

the webpage is located under the ‘Priorities’ section of the NRCS website. The Equity landing page is 

viewable at https://www.nrcs.usda.gov/about/priorities/equity and includes links to key information, 

resources, and a series of pages forming a comprehensive and dynamic Equity section of the new 

NRCS site.

Delivering on Justice40 - In Executive Order 14008, the President directed a joint publication of guidance 

on how certain Federal investments might be made toward a goal that 40 percent of the overall benefits 

of such investments flow to advance underserved communities.

Program Implementation – In collaboration with USDA departmental leads and appointed agency 

representatives, NRCS executed the Justice40 interim guidance initial recommendations for a 

comprehensive approach to advancing equity in the agency’s conservation ‘covered’ programs by 40 

percent between fiscal years 2022 and 2026. For each ‘covered’ program, the implementation plan:

• Identifies the benefits of a covered program,

• Determines how a covered program distributes benefits, and

• Describes methods to calculate and report on reaching the Justice40 Initiative 40-percent goal

The NRCS Justice40 ‘covered’ programs can be viewed at: https://www.nrcs.usda.gov/about/priorities/

equity/justice40
NRCS Equity Action Plan 15

Stakeholder Engagement – NRCS is engaged in revisiting and reviewing past reports and 

recommendations from stakeholders with suggestions for how USDA can improve on customer service, 

civil rights, and equity through the Justice40 and Equity Commission efforts. Additional stakeholder 

engagement pursuant to Justice40 was conducted via five public listening sessions and a Request for 

Information published in the Federal Register that garnered more than 500 public comments.

Improving Program Accessibility - In accordance with the NRCS commitment to advancing equity, 

the agency acted to improve program accessibility through actions across the breadth (program 

functions and services) and organizational depth (NRCS hierarchy) of NRCS. Actions include updated 

policy provided through Title 440 Conservation Programs Manual Part 530 allows States more overall 

flexibility in program implementation.

States can request policy waivers for specific situations where existing policy may not be applicable 

or additional flexibility is needed. Updated policy expanded State Conservationists’ and Directors’ 

authority to approve waivers (e.g., Early Start waivers, first practice or activity after 12 months, 

extending terms of an NRCS-CPA-153 for up to an additional 12 months).

Act Now Policy (440-CPM-530-D-530.37) helps to streamline the application process, particularly 

for historically underserved producers, by providing an opportunity for States to identify ranking 

pools and establish a ranking threshold at or above which they can automatically pre-approve an 

application for funding and move to contract obligation quickly.

Alternative Funding Arrangements (440-CPM-530-L) provide guidance for Indian Tribes and 

Alaska Native Corporations with additional flexibilities for funding, planning, and administration to 

implement EQIP and CSP where existing processes create barriers to program participation.

Updates to forms to remove obsolete information, streamline procedures, and improve clarity, including:

• NRCS-CPA-1200, “Conservation Program Application”

• NRCS-CPA-1245, “Practice Approval and Payment Application”

• NRCS-CPA-152, “Conservation Program Contract Transfer Agreement”

• NRCS-FNM-60, “Electronic Funds Transfer Hardship Waiver”

• NRCS-CPA-153, “Agreement Covering Non-Compliance with Provisions of Conservation Program 

Contract”

Improvements were made to better serve Limited English Proficient customers and to address barriers 

to program participation. NRCS worked with FPAC External Affairs to produce translations for critical 

contract documents and other key program documents in multiple languages (including Spanish, 

Hmong, Chinese, Vietnamese, and Korean), and additional languages are available upon request.

The NRCS Financial Assistance Programs Division established a process for States to provide feedback 

and recommendations to improve program policy, including recommendations to remove or revise 

policies that may present barriers to program delivery.

The NRCS Easements Programs Division prioritized selection and funding of easement proposals for 

the Wetland Reserve Enhancement Partnership, resulting in four new projects with specific ties to 

underserved communities obligating $17 million in the first year.

The Easements Programs Division also prioritized fiscal year 2022 funding of easement applications 

with historically underserved applicants that were unfunded in 2021 for the Agricultural Conservation 

Easement Program (ACEP). This resulted in funding of six additional ACEP Agricultural Land Easements 

applications for $1.7 million and five additional ACEP Wetlands Reserve Easements for $4.2 million.

NRCS worked with the FPAC Customer Experience Division to create a non-customer survey, which will 

intersect with underserved communities to identify additional barriers and solutions from stakeholders 

and public perspectives.
16 NRCS Equity Action Plan

Urban Agriculture – The Office of Urban Agriculture & Innovative Production added language from 

Executive Orders 13985 (Advancing Racial Equity and Support for Underserved Communities), 14008 

(Tackling the Climate Crisis at Home and Abroad), and 13990 (Protecting Public Health and the 

Environment and Restoring Science to Tackle the Climate Crisis) to the evaluation criteria of Urban 

Agriculture & Innovative Production Grants and Community Compost & Food Waste Reduction 

Cooperative Agreements. Those updates help to ensure that applicants address these issues in their 

proposals and that selections for funding consider these priorities.

Additionally, NRCS rescinded General Manual Title 450 Subtitle 408 Subpart A “Assistance for Soil and 

Water Conservation,” which limited NRCS providing conservation engineering designs in urban areas.

Program Outreach and Partnerships - NRCS is committed at all levels of the agency to advancing equity 

through partnership with stakeholders, Tribal entities, Community Based Organizations, and other 

underserved communities and relevant institutions.

Equity Outreach Agreements – NRCS administered $50 million of investments in partnerships to 

improve equity in access to conservation programs and support efforts to address climate change. 

The Equity Conservation Cooperative Agreements fund two-year projects to expand the delivery of 

conservation assistance to producers who are new to farming, are low-income, identify as one or more 

marginalized race or ethnicity, and/or are military veterans. The program encourages new partnerships 

and the development of State and Community leadership for underserved producers, with projects 

focusing on key conservation priorities including:

• Improving soil health and water quality,

• Providing habitat for at-risk wildlife,

• Improving natural resources and productivity on agricultural lands,

• Increasing access to conservation staff and resource in urban areas, and/or

• Building and strengthening local and regional food systems and markets

NRCS selected 118 groups to provide funding through Equity Conservation Cooperative Agreements, 

including 84 new partnerships and the expansion of 34 other partnerships with entities serving 

historically underserved groups. In fiscal year 2023, NRCS will invest an additional $100 million in 

another round of Equity Conservation Cooperative Agreements.

Get Started: A Guide to USDA Resources for Historically Underserved Farmers and Ranchers – Led 

by NRCS, the FPAC Mission Area rolled out a new guide to help underserved producers navigate 

USDA programs. The NRCS Historically Underserved Working Group developed the Get Started guide, 

with consultation from the NRCS Equity Division, FPAC External Affairs, and experts across FPAC 

agencies, to serve as a one-stop shop for underserved producers (beginning, low-income, military 

veteran, women, and those identifying as one or more marginalized race or ethnicity). The guide covers 

everything from planning a service center visit and obtaining a farm number to navigating eligibility for 

the technical and financial assistance programs offered across FSA, NRCS, and RMA. Additional topics 

especially relevant to underserved producers include urban and organic agriculture and heirs’ property.

The Get Started guide is available online as a digital download in English, Spanish, Hmong, Korean, 

Vietnamese, Thai, and Chinese. Other languages can be made available upon request. USDA Service 

Centers across the U.S. received 25 printed copies in English to start with, and additional copies and 

translations can be ordered as necessary to serve customer, community, and partner needs.

State Outreach Coordinators - The Chief of NRCS reinforced the establishment of the Outreach Direction 

and Coordination collaboration in all States by identifying Outreach Coordinators to begin launching 

effective community outreach for NRCS conservation programs, benefits, and opportunities and for 

assisting new and beginning customers on how to achieve success on their farm lands. Additionally, 

State Outreach Coordinators and the community outreach that they lead provide a lifeline to help 

customers become educated on the efficiency of NRCS conservation program opportunities.
NRCS Equity Action Plan 17

Urban Agriculture – In fiscal year 2022, the Office of Urban Agriculture & Innovative Production held 25 

outreach events targeted to historically underserved groups in urban and suburban areas. Additionally, 

the office updated the USDA Urban Agriculture Toolkit by publishing a series of customer-facing 

documents, including:

• Urban Agriculture Programs at a Glance, which highlights USDA programs and resources 

available to urban customers, partners, entities, and their communities

• Urban Agriculture & Innovative Production Grants, which highlights the urban grant programs 

available and how to apply

• Reducing Food Waste, which highlights the annual cooperative agreements process to assist 

local and municipal governments with projects to develop and tests strategies for compost 

plans and food waste reduction plans

Data-Driven Equity - NRCS work to advance equity is supported by continuous improvement in collection 

and analyses of conservation program and technical assistance data and other data sources as needed 

to ensure that processes and programs are impartial, fair, and provide equal possible outcomes for all 

applicants, participants, partners, and stakeholders.

EQIP Budget Prioritization – NRCS developed methodology for integration of equity data and metrics 

into Environmental Quality Incentives Program (EQIP) budget prioritization for fiscal years 2022 

and 2023. The methodology combines considerations of NRCS State historical performance, unmet 

demands, and potential for delivery of technical and financial assistance to underserved producers. The 

agency plans to expand the methodology to other program allocations while tracking impacts of the 

prioritization decisions to program delivery, particularly concerning applications and contracts with 

underserved producers.

Outreach, Equity, and Program Delivery – NRCS and the FPAC Analytics Team released a suite of 

internal dashboards for Outreach, Equity, and Program Delivery. The dashboards leverage datasets 

across FPAC agencies to provide insight into NRCS financial assistance program delivery to customers 

that self-identify with race, ethnicity, gender, and other customer groups to improve outreach to 

underserved producers and communities. Additionally, the dashboards provide centralized access for 

agency leadership and key staff to authoritative datasets and analyses, many of which incorporate 

metrics and indicators developed to evaluate progress in redressing inequities in program delivery 

components. The comprehensive approach taken in this suite of dashboards enables tracking of 

progress toward equity goals set for NRCS programs.

“ NRCS will be the voice which works to understand 

the disparities of non-accessibility to our programs and 

services, and we will work tirelessly to right the inequalities, 

inequities, and injustices within our agency.

- Vivian A. Dickson, NRCS Equity Division Director

”
18 NRCS Equity Action Plan

APPENDICES
NRCS Equity Action Plan 19

APPENDIX A: Glossary of Equity Key Terms

Bias: prejudice in favor of or against a person or group, usually considered unfair.

Explicit Bias: attitudes or stereotypes that people are aware of and that operate consciously.

Implicit Bias: attitudes or stereotypes that affect understanding, actions, and decisions unconsciously.

Community Based Organization (CBO): recognized groups concerned with improving the quality of life 

for residents within local communities. Such organizations serve as project initiators and managers, 

thereby providing avenues for involvement with and access to locally led processes and activities. 

These groups include nonprofit, nongovernmental organizations with well-defined constituencies that 

include all or part of a particular community. Faith-based organizations, women’s groups, environmental 

groups, farm or woodlands groups, trade and professional associations, educational associations, and 

schools are all examples.

Discrimination: unfavorable or unfair treatment of a person or class of persons in comparison with others 

who are not members of the protected class because of race, ethnicity, national origin, sex, gender, 

sexual orientation, marital and family status, parental status, political beliefs, religion, age, physical or 

mental disability, because all or part of their income is derived from a public assistance program, and/

or reprisal for opposition to discriminatory practices.

Disparate Impact: an adverse effect that is predominantly borne by a specific portion of the population 

or that is suffered by a specific portion of the population and is appreciably more severe or greater 

in magnitude than the adverse effect that will be borne or suffered by the rest of the population; a 

decision or action which is applied evenhandedly that has the effect of excluding or otherwise adversely 

affecting specific groups of persons.

Disparate Treatment: when similarly situated persons (or a class of persons) are treated different than 

others, and the only attribute that is different is one that is protected by civil rights laws and regulations 

(e.g., race, ethnicity, national origin, age, disability, and where applicable, sex, sexual preference, marital 

and family status, religion, political beliefs).

Diversity: the practice of including the many communities, identities, races, ethnicities, backgrounds, 

abilities, cultures, and beliefs of the people, including underserved communities.1

Equality: each individual or group of people is given the same resources or treatment. Like “equity,” equality 

aims to promote fairness and justice, but it only works if everyone starts from the same opportunities 

with the same resources.

Equity: the consistent and systematic fair, just, and impartial treatment of all individuals, including individuals 

who belong to underserved communities that have been denied such treatment, such as Black, Latino, 

and Indigenous and Native American persons, Asian Americans and Pacific Islanders and other persons 

of color; members of religious minorities; lesbian, gay, bisexual, transgender, and queer (LGBTQ+) 

persons; persons with disabilities; persons who live in rural areas; and persons otherwise adversely 

affected by persistent poverty or inequality.1,2 Equity ensures that all individuals and communities have 

the opportunities and resources they need to reach equal outcomes.

Historic Baseline: the reference scenario against which change is measured; ideally, the baseline includes 

historic data as well as a forecast for the future for measures concerning a particular decision.

1 Executive Order 14035 Diversity, Equity, Inclusion, and Accessibility in the Federal Workforce. 25 June 2021.

2 Executive Order 13985 Advancing Racial Equity and Support for Underserved Communities Through the Federal Government. 

20 January 2021.
20 NRCS Equity Action Plan

Historically Underserved Producer: the Agriculture Improvement Act of 2018 includes provisions that 

address the unique circumstances and concerns of historically underserved producers and ranchers to 

include beginning, socially disadvantaged, limited resource, and veteran farmers and ranchers. See the 

NRCS website for further explanations and eligibility criteria.

Inclusion: engagement of diverse perspectives; a set of actions to ensure the same opportunities for 

success for everyone in a community; a community where all members are and feel respected and 

appreciated, have a sense of belonging, and are able to participate and achieve to their potential.

Inequity: lack of fairness or justice; occurs when everyone does not have the same access to opportunities 

and resources.

Justice: the systematic, proactive reinforcement of policies, practices, and attitudes that produce equitable 

power, access, opportunities, treatment, and outcomes for all.

Limited English Proficiency3: to improve access to federally-conducted and federally-assisted programs 

and activities for persons whom, as a result of nation origin, are limited in their English proficiency.

NRCS Partners: groups and organizations that share common concerns and goals that help carry out 

the NRCS mission. They can help appropriately and clearly explain the missions and programs of the 

agency, provided they are equipped with the appropriate outreach tools and details.

Outreach: conducting business to ensure that NRCS programs and services are made accessible to all 

customers, with emphasis on the historically underserved. Outreach also involves crafting messages 

and informational materials with language and services that speak to particular groups and populations 

and aid them in understanding the mission, processes, goals, obligations, and eligibility issues inherent 

in the work of the agency and the Farm Bill.

Prejudice: an unfair belief or feeling of dislike for a person or group because of race, ethnicity, gender, 

religion, or other interpersonal differences.

Racism: a belief that race is a fundamental determinant of human traits and capacities and that racial 

differences produce an inherent superiority of a particular race; behavior or attitudes that reflect 

and foster this belief; the systemic oppression of a racial group to the social, economic, and political 

advantage of another.

Individual Racism: pre-judgment, bias, or discrimination by an individual based on race; can be both 

internalized (private beliefs and biases) and interpersonal (when private racial beliefs affect actions 

with others).

Institutional Racism: policies, practices, and procedures that produce inequitable outcomes for people 

of color and advantages for white people; institutions and agencies that adopt and maintain such 

policies.

Systemic Racism: encompasses history and current reality, combining across interlocking institutions 

to create a system with cumulative and compounding effects that systematically advantage white 

people and disadvantage people of color.

Stakeholder: an individual, group, or organization that has an interest in, is concerned by, or is affected by 

the activities of government, business, or other organizations.

Stereotype: unfairly believing that all people sharing a characteristic or set of characteristics are the same.

Underserved Communities: populations sharing a particular characteristic, as well as geographic 

communities, that have been systematically denied a full opportunity to participate in aspects of 

economic, social, and civic life, as exemplified by the preceding definition of ‘equity.’ 1,2

3 Executive Order 13166 Improving Access to Services for Persons with Limited English Proficiency. 11 August 2000.
NRCS Equity Action Plan 21

APPENDIX B: Resources

Executive Order 13985, Advancing Racial Equity and Support for Underserved Communities Through the 

Federal Government

Executive Order 14008, Tackling the Climate Crisis at Home and Abroad

Executive Order 14035, Diversity, Equity, Inclusion, and Accessibility in the Federal Workforce

USDA Strategic Plan Fiscal Years 2022-2026

USDA Equity Webpage

USDA Equity Action Plan

NRCS Equity Webpage

NRCS Equity Policy Statement

NRCS Equity Poster

2011 Jackson Lewis Report, Independent Assessment of the Delivery of Technical and Financial Assistance

(NRCS recommendations begin on page 316)

Government Alliance on Race & Equity (GARE) resource guide Advancing Racial Equity and Transforming 

Government

GARE resource guide Racial Equity Toolkit: An Opportunity to Operationalize Equity
22 NRCS Equity Action Plan

Non-Discrimination Statement

In accordance with Federal civil rights law and U.S. Department of Agriculture (USDA) civil rights 

regulations and policies, the USDA, its Agencies, offices, and employees, and institutions participating in 

or administering USDA programs are prohibited from discriminating based on race, color, national origin, 

religion, sex, gender identity (including gender expression), sexual orientation, disability, age, marital 

status, family/parental status, income derived from a public assistance program, political beliefs, or reprisal 

or retaliation for prior civil rights activity, in any program or activity conducted or funded by USDA (not all 

bases apply to all programs). Remedies and complaint filing deadlines vary by program or incident.

Persons with disabilities who require alternative means of communication for program information (e.g., 

Braille, large print, audiotape, American Sign Language, etc.) should contact the responsible Agency or 

USDA’s TARGET Center at (202) 720-2600 (voice and TTY) or contact USDA through the Federal Relay 

Service at (800) 877-8339. Additionally, program information may be made available in languages other 

than English.

To file a program discrimination complaint, complete the USDA Program Discrimination Complaint Form, 

AD-3027, found online at How to File a Program Discrimination Complaint and at any USDA office or write 

a letter addressed to USDA and provide in the letter all of the information requested in the form. To request 

a copy of the complaint form, call (866) 632-9992. Submit your completed form or letter to USDA by:

(1) mail: U.S. Department of Agriculture

Office of the Assistant Secretary for Civil Rights

1400 Independence Avenue, SW

Washington, D.C. 20250-9410;

(2) fax: (202) 690-7442; or

(3) email: program.intake@usda.gov

USDA is an equal opportunity provider, employer, and lender.

SEPTEMBER 2022

USDA is an equal opportunity provider, employer, and lender.