Research, Education, and Economics

Action Plan

February 2012
Research, Education, and Economics Action Plan

February 2012

Preamble

As the 21st century unfolds, America faces economic, social, and environmental challenges that 

require strong and innovative systems of food and agricultural science for answers and 

technology solutions. Agriculture and natural resources are at the crossroads of the world’s most 

critical problems: establishing sustainable food production, providing clean and abundant water, 

responding to climatic variability, developing renewable energy, improving human health, and 

strengthening food safety. From fostering continued economic growth to adapting to the effects 

of climate change and addressing food security, the United States can continue to be a leader in 

global agriculture. Yet, the challenges facing agriculture, natural resources, and conservation are 

immense and need to be faced with a robust research enterprise and educational programs in 

order to out-innovate, out-educate, and out-build the rest of the world. Our continued global 

leadership and success depend upon a renewed and reinforced commitment to our world-class 

agricultural science and research capabilities, as well as training the next generation to carry 

these studies into the future. If we want to keep America at the forefront of global competition, 

we need to make smart investments in education and innovation, leveraging the diverse resources 

and talent we have, especially in the agricultural sciences. The education begins with supporting 

science, technology, engineering, and math (STEM) programs so that science and mathematics 

are woven seamlessly into students’ skills and interests.

The framework for my role as Under Secretary for Research, Education, and Economics (REE) 

in this respect has been delineated by the 2008 Farm Bill and by ―A Roadmap for USDA 

Science,‖ produced by my predecessor in early 2010. During my tenure as Under Secretary, 

I have held a series of informal and formal consultations with multiple stakeholders in 

U.S. Department of Agriculture (USDA) science, including the National Agricultural Research, 

Extension, Education, and Economics (NAREEE) Advisory Board, to assess REE’s progress in 

achieving the vision set forth in these documents. I have also reviewed the reports prepared by 

REE staff in 2009 in gathering background for the ―Roadmap‖ that examined USDA science in 

the context of other science agencies in the Federal Government. These sources, as well as 

lessons learned from implementation of Farm Bill provisions, especially related to the 

establishment of the National Institute of Food and Agriculture (NIFA), Agriculture and Food 

Research Initiative (AFRI), and the Office of the Chief Scientist, can significantly inform our 

planning, going forward. 

Through this systematic review process, I discovered several areas to focus on, regarding how 

the education and training of the next generation of scientists, and of the future of agriculture, are 

being addressed. The important work done by the National Agricultural Statistics Service 

(NASS) and the Economic Research Service (ERS), for example, could be made much more 

visible. We need to ensure the sustainability of our core programs and competencies, both 

United States Research Office Room 216W

Department of Education of the Under Jamie L. Whitten Building

Agriculture Economics Secretary Washington, D.C. 20250-0110
ii

intramural and extramural, in order for USDA-conducted and supported science to be able to 

deliver on the strategic goals and priorities of the Department. With this challenge at hand, as 

USDA's Chief Scientist and Under Secretary for REE, I am pleased to introduce a plan for 

USDA science and research: the REE Action Plan. It links REE research, education, statistics, 

and economics programs to the Department’s strategic plan and includes measurable actions and 

outcomes to help coordinate our efforts to achieve the goals and priorities.

Now more than ever, careful planning is fundamental to global prosperity and security, and a 

dynamic and integrated strategic vision can be a guiding force for continued innovation, as well 

as the means to maximize the potential of our world-renowned system of agricultural science and 

research. The year 2012 marks the 150th anniversary of the historic partnership between the 

Federal Government and the States that formed the basis for the land-grant university system, 

which, along with local extension offices and experiment stations, not only revolutionized 

American education and agriculture, but together transformed the Nation’s economic and social 

fabric. In preparation for this anniversary, and in light of the many pressing challenges we face, 

it is time to renew our Nation's commitment to maintaining and growing a progressive and 

innovative system of agricultural science. The time is right to reinvent and reimagine a research 

and development partnership between the Federal Government and the States to face today's 

many challenges. And, we need to craft a new compact with America—its States, its agricultural 

producers, its consumers, and its colleges and universities, and the private sector—to bring into 

existence a renewed agricultural enterprise capable of feeding the world and inventing new 

technologies and energy sources needed in the decades to come.

Drafting the REE Action Plan has been an ongoing process of consultation, revising, refining, 

and strategically structuring the core mission area elements that REE is best suited and most able 

to champion. The Action Plan is not designed to be a comprehensive compendium of all 

research, education, and extension programs within the mission area. Rather, the purpose is to 

identify and outline focused efforts in mission-critical core areas. This focus will enable a shared 

vision for USDA science across the Department.

The REE Action Plan is organized around the leading priority areas for USDA science. 

However, these priorities are clearly linked—in science, nature, and through the multitude of 

goods and services produced on our Nation’s working lands. These linkages between priority 

areas reflect the inherent complexity of agricultural systems and highlight our need for even 

more interdisciplinary investigations as we move forward.

Our new compact must reflect that, collectively, we have—at USDA and with our many

partners—a robust infrastructure to perform world-class science. But, instead of building 

separate and duplicative resources agency by agency, State by State, university by university, we 

should identify which agencies, Departments, and institutions have the critical skills to solve a 

problem, and focus that combined knowledge and capacity where it will do the most good. Our 

new compact must reflect that we have at USDA, and in our partner institutions, many of the 

world’s best scientists. This rich and deep talent base is capable of addressing almost any 

problem we can put before it. With the right vision, we can figure out how those many problems 

relate to our most urgent issues and tackle the root causes rather than manage the symptoms. 
iii

As Under Secretary for REE, I intend to use the valuable resources in our agricultural research, 

education, and extension systems to implement an efficient and effective strategy for the diverse 

stakeholders in the public and private sectors to collaborate on our common concerns in an 

inclusive and integrated manner. Looking forward, yet facing the realities of today's economic 

climate, we must now simultaneously streamline and enhance our research, education, and 

extension capabilities while using our resources intelligently and efficiently. This will mean 

integrating our diverse capabilities into a collaborative and cohesive operational unit that will

multiply our research yields, focus our vision, unify our voice, and enhance our chances of 

success. It also means laying the foundation for a strong economic future by attracting the next 

generation of students into the field of agricultural sciences and research—including a spectrum

of biological, biochemical, biophysical, economic, food science, climatological, environmental,

and soil sciences—to build a pipeline of talent that keeps America leading the world’s 

agricultural innovation. 

We have proven in the past, time and again, what American agricultural science is capable of, 

and it is once again time for us to renew our commitment to its strengths and possibilities. The 

immensity and diversity of the difficulties we face allow us an excellent opportunity to once 

again demonstrate our ability and capacity to rise and meet the greatest of challenges. There is 

not a moment to lose, and REE has a unique role in achieving these goals.

Catherine E. Woteki, Ph. D.

Under Secretary for Research, Education, and Economics

Chief Scientist

U.S. Department of Agriculture
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Acknowledgements

The Office of the Under Secretary for Research, Education, and Economics wishes to thank the 

following individuals for their contributions in the development of the REE mission area action 

plan. Drafting this document would not have been possible without their help.

Michael Arnold

Jill Auburn

Henry Bahn

Carmela Bailey

Kevin Barnes

Ann Bartuska

Harry Baumes

Roger Beachy

Mark Boggess 

Mary Bohman

Rick Borchelt

Frank Boteler

Jim Bradley

Rick Brenner

Meryl Broussard

Marilyn Buford

Rob Burk

Evert Byington

Jerry Campbell

Patrick Cassidy

Margriet Caswell

Cheryl Christensen

Cynthia Clark

Marina Denicoff

Jim Dobrowolski

Erik Dohlman

Sharon Drumm

Allison Eckhardt

John Finley

Bob Fireovid

Deborah Fravel

Keith Fuglie

Cyril Gay

Robert Gibbs

Loureatha Gibson

Elise Golan

Bill Goldner

Mary Gray

Robert Hale

Dale Hawks

Deb Hayes

Dick Hegg

Eileen Herrera

Bart Hewitt

Franz Hochstrasser

Neil Hoffman

Bill Hohenstein

Karen Hunter

Chavonda Jacobs-Young

Ed Kaleikau

Tina Kingsberry

Charlotte Kirk Baer

David Klurfeld

Ray Knighton

Ed Knipling

John Kort

Molly Kretsch

Hiram Larew

Lisa Lauxman

Torey Liepa

James Lindsay

Carl Lucero

Bob MacDonald

Andy Mason

Sara Mazie

Michael McGirr

Chris Messer

World Nieh

Mike O’Neill

Jack Okamuro

Ralph Otto

Catherine Parks

Donna Perla

Renee Picanso

Greg Pompelli

Rich Pouyat 

Ram Rao

Linda Raudenbuch

Anita Regmi

Joe Reilly

Caird Rexroad

Marc Ribaudo

Carlos Rodriguez-Franco

Colleen Rossier

Etta Saltos

Glenn Schaible

Sally Schneider

Roy Scott

Steven Shafer

Ibrahim Shaqir

Deb Sheely

Robbin Shoemaker

Kay Simmons

Jan Singleton

Larry Sivers

Kitty Smith

Matt Smith

Steve Smith

Judy St. John

Jeff Steiner

Lona Stoll

Suresh Sureshwaran

Sally Thompson

Jeanette Thurston

Mary Torrence

Jermelina Tupas

Luis Tupas

Laurian Unnevehr

Mark Walbridge

Isabel Walls

Joani Walsh

Charlie Walthall

Susan Welsh

Caren Wilcox

Gail Wisler

Marcella Witting

Monica Wyant
I. Introduction

In June 2010, Secretary Thomas J. Vilsack released the U.S. Department of Agriculture (USDA) 

Strategic Plan for 2010-2015, which articulated a comprehensive agenda for USDA. 

Fundamental to accomplishing this agenda is ensuring an equally comprehensive approach 

to science, education, and information to support subsequent action. As requested in the 

2008 Farm Bill, then Under Secretary Rajiv Shah tasked the Research, Education, and 

Economics (REE) mission area to develop “A Roadmap for USDA Science” in early 2010, 

which articulated a vision for delivering the research, tools, and statistical data needed to meet 

the needs of USDA agencies and the country. That vision also reflected the growing needs 

domestically and globally for a comprehensive approach to agriculture and working lands. In a 

world undergoing major economic challenges, it is not surprising that people turn to the basic 

provisioning factors of food, water, and shelter in order to understand building a sustainable 

environment. USDA science is central to providing these basic requirements of life. The REE 

Action Plan further develops the vision outlined in the Roadmap and provides focus, direction, 

and accountability.

In ―A New Biology for the 21st Century‖

1

the National Academy of Sciences identified a set of 

challenges that integrate fundamental biological understanding with critical societal issues. One 

of the questions posed was ―how can Federal agencies more effectively leverage their 

investments in biological research and education to address complex problems across scales of 

analysis from basic to applied?‖ In addition, the articulated principles of a New Biology 

emphasize integration–of disciplines and approaches–but perhaps most relevant to USDA is to

purposely organize research around problem-solving. These can readily be viewed as principles 

of USDA science. 

 

1 A New Biology for the 21st Century. National Research Council. National Academies Press. 2009. Available at 

http://www.nap.edu/catalog/12764.html.

“The „Roadmap‟ presents an assertive and progressive approach to 

transforming USDA REE into a high-profile research organization.” 

(NAREEE Advisory Board, December 2010)
2

The Department’s plan reflects a vision to use the best available science to expand economic 

opportunity through innovation, to promote agriculture production sustainability that better 

nourishes Americans while also helping to feed others throughout the world, and to preserve and 

conserve our Nation’s natural resources. Our commitment to sustainable agriculture is 

compatible with the recent National Research Council report, which defined sustainable 

agriculture as (1) producing enough to satisfy human needs, (2) enhancing environmental quality 

and protecting the natural resource base, (3) being profitable, and (4) increasing the quality of 

life for farmers, farm workers, and society as a whole. The use of sustainable agriculture as a 

guiding framework is an underlying assumption throughout our plan, and is also an explicit 

component of many of the goals and strategies. Fully half of the organizations that provided 

formal input to the roadmap included this concept.

II. Strategic approaches

This action plan describes a set of strategies and actions that relate to a goal that is either 

programmatic or supports administrative activities. There is another set of activities that relates

to ―how‖ our work will get done. They reflect an overarching philosophy of integration and 

collaboration, of ethical behavior, and of a focus on the user of the information.

REE delivers the scientific discovery mission of USDA through:

The Agricultural Research Service (ARS), the largest intramural research agency of USDA. 

ARS has a workforce of approximately 8,000 employees, including 2,200 life and physical 

scientists, engineers, and veterinarians who represent a wide range of disciplines and work at 

more than 100 locations across the country and at 5 overseas laboratories. The ARS research 

agenda is broad, with about 1,200 research projects organized under 4 major program areas: 

Nutrition, Food Safety, and Food Quality; Animal Production and Protection; Natural 

Resources and Sustainable Agricultural Systems; and Crop Production and Protection.

The National Institute of Food and Agriculture (NIFA), USDA’s primary extramural 

research, education, and extension funding agency. Its mission is to lead food and agricultural 

science to create a better future for the Nation and the world by funding research, education, 

and extension projects and programs, some of which are specific to the Land-Grant University 

System, and others open to participation by other partner organizations.

The Economic Research Service (ERS), USDA’s primary source of economic information

and analysis, and economic and social science research. The mission of ERS is to inform and 

enhance public and private decisionmaking on economic and policy issues related to 

agriculture, food, the environment, and rural development.

The National Agricultural Statistics Service (NASS), USDA’s statistical agency. NASS

conducts hundreds of surveys every year and prepares reports covering virtually every aspect 

of U.S. agriculture. NASS also conducts statistical science research on survey design, 

sampling, and other methodological issue areas. NASS works closely with the states in 

determining their agricultural profiles.
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o We are taking a portfolio approach to optimize the investment in USDA science. We 

take advantage of our intramural capacity in science and statistics and seek alignment

with our investment in projects funded through our extramural programs. We thus 

capitalize on our ability to do long-term, broad-scale science that is foundational and 

must be performed by the public sector (stability) and to be nimble by funding 

universities and other research institutions as new questions emerge that require 

specialized concentrations, or as we identify gaps in capacity. One way the university 

partnership is strengthened is through competitive, peer-reviewed research.

o We are leveraging our strong foundational research and statistical information capacity, 

including a sustained investment in research that supports production agriculture, to spur 

innovation and respond to emerging issues and opportunities. Ensuring the intellectual 

capital in traditional agricultural and natural resource disciplines must be sustained if we 

are to meet USDA’s research needs into the future. Maintaining a core program in the 

traditional disciplines and approaches enables immediate responses to emerging issues 

and is the backbone for maintaining key disciplines and solving 21st century problems.

o We are promoting scientific integrity in the policies of USDA, both in the performance of 

scientific research itself as well as in its use. In this, we are aligned with the 

December 17, 2010, letter from Dr. John Holdren, Director of the Office of Science and 

Technology Policy, charging all Departments and agencies at the Federal level to develop 

sound policies that ―ensure a culture of scientific integrity‖ and ―strengthen the actual and 

perceived credibility of Government research.‖

o We are moving science into practice through our technology transfer and Cooperative 

Extension efforts; promoting innovation in agriculture, forestry, and conservation; and 

through informing program and policy decisions at the community, State, and national

levels. More than that, we have programs that address the continuum of learning, from 

K–12 education, to undergraduate and graduate education, to continuing education of 

professionals. Keeping the pipeline of students ready to move into the agricultural

science and research jobs of the future has to be a key focus today if America is going to 

win the global marketplace of tomorrow. In this way, REE agencies put science and 

information into the hands of policymakers, practitioners, educators, and the interested 

public, thereby enhancing USDA’s mission.

o We collaborate formally and informally with other USDA and Federal agencies, as well 

as public and private partners, on a national and international level to ensure our research, 

education, and extension activities are representative of current priorities and take 

advantage of existing knowledge. 

o Our agricultural, environmental, and economics information bases provide data for 

analyses to inform policy, identifying emerging issues that require reliable data.

“It is simply service that measures success” -George Washington Carver
4

REE’s Guiding Principles

o We listen openly to the people‟s needs, engaging our stakeholders and the 

users of the information we produce, to shape our priorities.

o We use our disciplinary building blocks and ongoing core programs as the 

foundation of our ability to anticipate and respond to emerging issues and 

opportunities.

o We create an environment of inquiry and innovation.

o We use our capacity in research, in education, in extension, and in 

statistical measures to achieve our goals.

o Our education and extension efforts advance all REE goals.

o We leverage our work and resources through our partners in the 

State-based universities, other Federal science agencies, and with the 

private sector, globally and locally.

o Our programs, from more than a century of transformative science to 

leading-edge economic research, inform USDA policy and other decisionmakers.

o We cultivate a world-class, broadly inclusive, research and statistical 

workforce.

o We support excellence in research, in information gathering, and in 

education and extension through a capable and responsive organization. 

o Our infrastructure–the National Arboretum, the National Agricultural 

Library, our labs, our collections, and our experimental farms and 

watersheds–is a valuable asset and a legacy for science and the American 

people. We are committed to leveraging our assets to achieve 

sustainability and increase capacity to solve future problems.

o We improve sustainable agricultural systems, integrating productivity, 

profitability, and stewardship of natural and human resources, upon 

which agriculture and land stewardship depend.
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III. Goals: Challenges, Strategies, and Actions 

Structural Outline:

Goal 1. Local and Global Food Supply and Security

Subgoal 1A. Crop and Animal Production

Subgoal 1B. Crop and Animal Health

Subgoal 1C. Crop and Animal Genetics, Genomics, Genetic Resources, and 

Biotechnology

Subgoal 1D. Consumer and Industry Outreach, Policy, Markets, and Trade

Goal 2. Responding to Climate and Energy Needs

Subgoal 2A. Responding to Climate Variability

Subgoal 2B. Bioenergy/Biofuels and Biobased Products

Goal 3. Sustainable Use of Natural Resources

Subgoal 3A. Water Availability: Quality and Quantity

Subgoal 3B. Landscape-Scale Conservation and Management

Goal 4. Nutrition and Childhood Obesity

Goal 5. Food Safety

Goal 6. Education and Science Literacy

Goal 7. Rural Prosperity/Rural-Urban Interdependence

GOAL 1. Local and Global Food Supply and Security

CHALLENGE: The future of U.S. agriculture depends on economic growth in the developing 

countries for expanding feed and food export markets; improving production and production 

efficiencies; generating beneficial knowledge, information, and technologies for adaptation and 

mitigation to climate change; helping protect the U.S. crops, livestock, and ecosystems from the 

threat of exotic pests and diseases; and improving the nutritional quality and safety of domestic 

and imported food products. In developing countries with largely agrarian populations, vibrant 

and sustainable agricultural production is the very basis for broad economic development and 

stability. Until a nation has the capacity to feed, clothe, and shelter its rural and native 

populations, labor and capital cannot be freed for the pursuit of growth in other economic 

sectors. Agricultural development depends on an information base to facilitate economic 

decisions on access to affordable and appropriate technologies that can 1) improve food 

production; 2) improve natural resource management, harvesting, storage, and distribution; and 

3) advance the health and safety of all citizens while minimizing environmental impacts. 
6

REE ROLE: Develop and transfer knowledge and skills that promote sustainable2

agricultural systems locally, regionally, and globally for all types of agriculture production 

systems, thereby enhancing domestic and international food security and strengthening

American agriculture. REE provides the information, technologies, analysis, and capacity 

to enable the U.S. agriculture, food, and fiber systems to produce the food, fiber, and 

energy to meet growing and changing world demands for these products in an 

economically and environmentally sustainable manner.

Local and Global Food Supply and Security 

SUBGOAL 1A. Crop and Animal Production

STRATEGIES AND ACTIONS:

Invest in research, development, and extension of new varieties and germplasm, practices, 

and systems of interest, both domestically and in developing countries, to safely and 

sustainably increase animal and crop production and its nutritional value. Improve feed

and forage use efficiency in animals and identify alternative feed and forage options for 

animal systems that do not compete for human food and energy needs. Develop and 

populate a framework for understanding the sustainability (productivity, economic, and 

environmental) outcomes of agriculture/food/forestry practices and systems.

Actionable items

o Identify and implement best management practices for animal and plant systems that 

are environmentally, economically, and socially sound, including optimized tillage 

management strategies for key crops, optimized strategies for pollinator management 

and conservation, precision management practices for spatial application of water to 

maximize irrigation water use efficiency and increase profitability and 

recommendations for optimal cover crops and management practices to enhance 

carbon sequestration and soil health in no-till corn-soybean based rotations. (ARS, 

NIFA)

o Develop new management options to allow enhanced animal production systems to 

adapt to and/or mitigate biotic and abiotic stresses, such as aflatoxins, related to 

climate change. (ARS, NIFA)

o Integrate superior germplasm and best management practices into profitable, 

productive, and environmentally sound integrated systems for crop and animal 

production. Develop enhanced germplasm and superior production systems to 

lengthen the fresh market specialty crop harvest season to increase the nutritional 

value, availability, and affordability for local/regional markets. (ARS, NIFA)

o Develop and implement labor and cost-saving technologies, such as remote sensing 

for biotic and abiotic stresses, spray application and fruit thinning technologies, and 

dynamic pre-harvest yield estimation to enhance production efficiencies for producers 

of all sizes. (ARS, NIFA)

o Develop more sustainable crop production systems for organic crops including 

producer guidance on nitrogen (N) availability in organic systems and 

 

2

―Sustainable‖ as used here refers to the National Research Council’s definition of sustainability as put forth in the 

―Toward Sustainable Agricultural Systems in the 21st Century‖ Report from June, 2010.
7

recommendations on impact of crop rotation length and complexity on soil erosion 

control. (ARS, NIFA)

o Continue development and application of genetic, genomic, and other production 

technologies and alternative feed ingredients to improve nutrient utilization in 

livestock and aquaculture species and reduce environmental impacts. (ARS, NIFA)

o Develop and extend improved feed ingredients, nutritional technologies, reproduction 

technologies, and animal health products for improved efficiency, productivity and 

well-being for agricultural animals. (ARS, NIFA)

o Develop a system for capturing and delivering data and information on 

environmental, economic, and social consequences of food, agriculture, and forestry 

systems and processes over the life cycle of product supply chains. (ARS, NIFA)

o Develop life-cycle inventory data on environmental, economic, behavioral, and social 

impacts of key agriculture-related processes to fill gaps in the framework. (ARS,

NIFA)

o Develop, assess, and share knowledge about transformative systems approaches to 

improving the sustainability of agriculture. (ARS, NIFA) 

Local and Global Food Supply and Security 

SUBGOAL 1A. Crop and Animal Health

STRATEGIES AND ACTIONS:

Invest in research, development, and outreach of new varieties and technologies to mitigate 

animal/plant diseases and increase productivity, sustainability, and product quality. 

Establish more sustainable systems that enhance crop and animal health.

Actionable items

o Develop and extend effective, affordable, and environmentally-sound integrated 

control strategies to reduce losses caused by diseases, pests, and weeds, including 

early detection, identification, monitoring, and implementing biologically-based and 

areawide strategies to manage key native and invasive species and postharvest pests.

(ARS, NIFA)

o Optimize integrated pest management practices for production crops by developing 

knowledge and tools for cultural methods, biological control, and host plant 

resistance management tactics. (ARS, NIFA)

o Improve ability to provide surveillance, early detection, rapid response, and 

appropriate recovery for emerging or reemerging plant and animal diseases of high 

consequence through the enhancement of national plant and animal disease diagnostic 

networks. (ARS, NIFA)

o Enhance development of effective zoonotic and production related disease counter 

measures such as diagnostics, monitoring, intervention, and vaccine development, for 

domestic and international animal populations through the enhancement of 

relationships and collaborations such as One Health and other international animal 

health programs. (ARS, NIFA)

o Partner with other Federal departments, such as the Department of State, Department 

of Defense, Department of Homeland Security, and Department of Health and Human 

Services, to develop strategies to transfer technologies and capacity to diagnose and 
8

control vector-borne and zoonotic diseases that impact livestock and human health.

(ARS, NIFA)

o Explore partnering with the National Institutes of Health (NIH) and Food and Drug 

Administration (FDA) to develop and extend alternatives to antibiotics, including preand probiotics, biotherapeutics, and immune modulators to enhance animal health and 

production under field conditions. (ARS, NIFA) 

o Expand research capacity for current and emerging vector-borne and foreign animal 

diseases that will both help control disease in the countries of origin as well as 

provide valuable information on control strategies in the event of the entry into the 

U.S. (ARS, NIFA)

Local and Global Food Supply and Security 

SUBGOAL 1C. Crop and Animal Genetics, Genomics, Genetic Resources, and 

Biotechnology

STRATEGIES AND ACTIONS:

Generate new fundamental knowledge through research in genomic sciences and 

applications of systems approaches required to enhance the sustainability of agriculture 

while increasing productivity. Preserve, characterize, and deploy genetic diversity to 

ensure economic and environmental sustainability and to maintain American agriculture 

leadership in a global, biobased economy. Conduct biotechnology risk and benefits 

assessment research that accurately and scientifically inform regulators, product 

development, and consumer acceptance, and provide information to FAS relevant to trade 

issues.

Actionable items

o Enhance the capacity of genetic resources and genome databases for target crops, 

animals, and priority pathogens, and expand the capacity of plant, animal, and 

microbial collections to manage increased numbers of new experimental 

genomic/genetic stocks. (ARS, NIFA) 

o Develop and extend crop and agricultural genetic products, production technologies, 

and practices with specific environmental and socio-economic value to improve 

production efficiencies, product quality, plant and animal health, and animal wellbeing. (ARS, NIFA)

o Develop livestock and aquaculture products and technologies with specific social and 

economic value to improve production efficiencies, product quality, animal health 

and animal well-being, and environmental performance. Continue development and 

application of genetic and genomic technology and sequence information to improve 

animal and plant production, reproduction, and quality. (ARS, NIFA)

o Develop new varieties of crops and breeds/lines of livestock and marine animals that 

consider nutritional content to enhance human health as a trait of primary importance, 

including more bioavailable vitamin and mineral content in new plant varieties and 

improved healthy fat profiles in animals. (ARS, NIFA)

o Develop improved tools for genetic and genomic analysis of complex genomes to 

support genetic improvement of food and other crop plants, including development

and support of interconnected databases that enable researchers to generate and 
9

access new knowledge about the structure and function of plant genomes. (ARS, 

NIFA)

o Identify and use genes and molecular processes that increase yield and improve 

composition and quality of crops. (ARS, NIFA) 

o Develop effective methods to conserve plant, animal, and microbial genetic diversity 

for use in agriculture, and identify and utilize genetic diversity to develop novel traits 

and properties that will enable development of useful plant varieties and animal 

breeds. (ARS, NIFA)

o Develop and implement new methods using transgenes that enhance the speed and 

efficiency of conventional plant breeding. (ARS)

o Assess new biotechnology varieties to promote more sustainable agricultural systems 

and determine risks and benefits on the environment and economy, including 

technologies that promote the coexistence of different agricultural production 

systems. (ARS, NIFA)

o Assess policies and management strategies for their ability to contribute to the 

coexistence of different agricultural production systems. (ARS, NIFA)

o Develop and extend technologies and practices to enhance the safety and quality of 

food and other agricultural products through improved pre- and post-harvest 

management, storage, and distribution. (ARS, NIFA)

Local and Global Food Supply and Security 

SUBGOAL 1D. Crop and Animal Consumer and Industry Outreach, Policy, Markets, and 

Trade

STRATEGIES AND ACTIONS:

Characterize and evaluate market performance and the provision of market information in 

domestic and international markets that affect producer production and marketing 

decisions in agriculture’s food, fiber, and energy sectors. Invest in data development, 

analysis, and dissemination to improve the understanding of agriculture markets, domestic 

and foreign trade policies, and other factors that impact food systems. Make agriculture 

research outcomes readily accessible to the public/consumers and to producers and 

processors through improved education and extension methods. 

Actionable items

o Analyze the performance of domestic, international, and regional markets and their 

impacts on global food security. (ERS) 

o Conduct research on the U.S. food and agriculture sector’s performance in 

increasingly globalized markets. (ERS, NASS) 

o Evaluate trends and changes in production agriculture and adjust States included in 

U.S. market year average price calculations and States included in the county 

estimates statistics program accordingly. (ERS, NASS)

o Develop and implement new programs to inform lay and scientific audiences, 

including new/beginning and socially disadvantaged farmers and ranchers, of the role 

that new technologies will play in addressing challenges that face global agriculture. 

(NIFA)
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o Expand access to new knowledge and technologies for stakeholders, including new 

and beginning and socially disadvantaged farmers and ranchers through education 

and extension. (NIFA)

o Characterize and evaluate trends in agricultural research funding and direction, both 

public and private; the use of various funding instruments; and key factors affecting 

research and development, and resultant productivity growth. (ERS)

o Examine the critical factors affecting price levels, volatility, and price discovery in 

cash and futures market research. (ERS)

o Develop estimates of international agricultural productivity growth to improve 

understanding of patterns of growth and analyze how different factors—including 

government policies—influence productivity trends. (ERS)

o Provide technical assistance to improve agricultural statistics systems in developing 

and transitioning countries. (ERS, NASS) 

o Produce annual Food Security Assessments covering 70 food insecure countries that 

analyze the current food security situation, project food security developments over 

the next decade, and analyze the effect of alternative economic and policy alternatives 

on global food security. (ERS) 

GOAL 2. Responding to Climate and Energy Needs

CHALLENGE: Production systems, whether for food, feed, fiber, or fuels are climatedependent to varying extents. The ability to respond to changes in climate is critical. With a 

seemingly ever-increasing demand for energy, producers must take into account changes in 

climate and adaptations in various plant varieties. Foundational research is necessary to identify 

plant species appropriate for changing climate, to meet increased energy demands, and to 

determine the role of agriculture in appropriate greenhouse gas reduction opportunities. 

Education and extension programs must also be developed and implemented to ensure that the 

knowledge gained reaches our many partners and the public.

Responding to Climate and Energy Needs

SUBGOAL 2A. Responding to Climate Variability

CHALLENGE: Agriculture, forest, and range production systems are affected by climate 

variability. Agricultural and forestry producers, land managers, and other decisionmakers need 

information, technologies, and decision-support tools to help them with greenhouse gas 

mitigation, and adaptation strategies. Crop, animal, forest, and range management strategies 

must take climate variability into account to ensure sustainability. The potential for forests and 

agricultural lands to serve as carbon sinks and to reduce greenhouse gas emissions must be 

quantified to support sound policies and environmental markets. Outreach and extension 

networks must be implemented to advance the incorporation of climate-change mitigation and 

adaptation strategies into management practices and utilize scientific findings for restoration 

projects and planning.
11

REE ROLE: Develop and deliver science-based knowledge that empowers farmers, 

foresters, ranchers, land owners, resource managers, policymakers, and Federal agencies 

to manage the risks, challenges, and opportunities of climate variability, and position 

decision makers to reduce emissions of atmospheric greenhouse gases and enhance carbon 

sequestration. 

STRATEGIES AND ACTIONS:

Explain the processes driving the direct and indirect effects of climate variability on 

natural and managed ecosystems, including feedbacks to the climate system. 

Actionable items

o Identify and quantify the effects of changing climate, climate variability, and 

atmospheric composition on agriculture, rangeland, and forest ecosystems 

productivity and sustainability. (ARS, NASS, NIFA, NRCS, Forest Service)

o Develop the forecasts for future impacts of climate changes on natural and managed 

ecosystems that can be used in air quality and agro-ecosystem policy analyses and 

management planning. (ARS, NIFA)

o Explain the processes and mechanisms that determine how climate change affects 

invasive species, weeds, pathogens, and insects and determine the effects of changing 

climate stresses on vector behavior, distribution, and host susceptibility for different 

crops, livestock, and forest species. (ARS, NIFA)

o Project economic and legal status consequences for landowners of climate-induced 

changes of natural and managed ecosystems emphasizing the well-being of producers 

(including beginning and socially disadvantaged farmers) and effects on agricultural 

markets, and ecosystem services. (ERS)

o Determine how climate variability and extreme weather events impact the physical, 

chemical, and biological properties of soil, including cycling of carbon, water, and 

essential plant nutrients; erosion and sedimentation; and the resilience of soils to 

support agricultural production and other ecosystem goods and services. (ARS, 

NIFA)

o Perform risk assessments and pathway analyses of invasive species, and develop 

climate-driven epidemiological models of plant, livestock, and wildlife diseases.

(APHIS, ARS, NRCS, Forest Service)

Develop knowledge and tools to enable adaptation of agriculture, forestry, and grasslands

to climate variability and to improve the resilience of natural and managed ecosystems and 

vulnerable populations. 

Actionable items

o Create adaptation strategies (including ―transformative‖ systems as described by the 

2010 National Research Council [NRC] publication ―Toward Sustainable 

Agricultural Systems in the 21st Century,‖ e.g., crop-livestock, organic, agro-forestry, 

etc.) to sustain and increase the resiliency of crop, livestock, and forest tree 

production systems, biodiversity, and ecosystem services, including practices and 

technologies that increase the resilience of subsistence food systems to climate 

variability, weather extremes, and changes in the composition of the atmosphere (i.e., 

increasing carbon dioxide and ozone concentrations). (ARS, NIFA)
12

o Expand evaluation of gene expression (phenology) to include traits associated with 

susceptibility and adaptation to climate change to assemble a centralized marker, and 

trait database for key plant and animal commodities for marker-assisted breeding 

programs. Develop analysis tools for breeders trained by a nationally-coordinated 

education network. (ARS, NIFA)

o Use population genetics, climate matching, and ecological niche assessment to project 

potential ranges of invasive pests to enable future detection and mitigation. (ARS, 

NIFA)

o Strengthen existing monitoring programs, such as the Forest Inventory and Analysis 

(FIA) and National Resources Inventory (NRI), and integrate them with other 

monitoring and data collection systems and research networks, such as Long Term 

Ecological Research sites, the National Ecological Observatory Network, and USDA 

Long Term Agroecosystem Research sites to track and manage changes in land use 

and related effects on ecosystem processes. (ARS, NASS, NIFA, Forest Service)

o Quantify consequences of producer choices for adapting to climate change on 

agricultural markets; farm structure, including land ownership; agronomic practices; 

adoption of technology; and ecological systems, and determine impacts on 

subsistence food sources. (ERS)

o Develop new types of cropping systems that utilize biodiversity and generate a 

broader set of ecosystem services than at present, i.e., environmental quality, stable 

livelihoods, and rural communities that support adaptive management. (ARS, ERS, 

NIFA)

Develop knowledge and tools to enhance the contribution of agriculture, forestry, 

grasslands, and other land management practices to mitigate atmospheric greenhouse gas 

(GHG) emissions. 

Actionable items

o Evaluate and improve biofuel cropping systems for feedstock production, greenhouse 

gas mitigation, and other ecosystem services. (ARS, NIFA)

o Develop information and technologies, including life cycle inventory, to build 

stakeholder capacity for estimating, measuring, tracking, and minimizing net GHG 

emissions per unit of commodity produced for multiple agricultural and forestry 

production scales. (ARS, NIFA)

o Evaluate economic, GHG, and other environmental implications of alternative 

approaches to the design and implementation of GHG mitigation policies in the 

agriculture and forest sectors; apply new methodologies from behavioral economics 

to identify farmer and rancher behavioral factors likely to affect their participation in, 

and the performance of, offset markets and incentive programs. (ERS)

o Develop and transfer knowledge to producers, land managers, and other decision 

makers on the GHG mitigation potential of ―transformative‖ agricultural systems 

(e.g., NRC 2010) to mitigate GHG emissions while providing other environmental, 

economic, and social benefits. (ARS, ERS, NIFA)

o Strengthen international capacity for agricultural GHG mitigation by providing 

leadership to the Global Research Alliance on Agricultural Greenhouse Gases. (ARS, 

ERS, NIFA)
13

Provide information and tools to USDA agencies, stakeholders, and collaborators to 

improve decisionmaking.

Actionable items

o Expand useraccess to models and tools developed for assessments of adaptation and 

mitigation strategies with user-friendly interfaces to facilitate decision support by

non-scientist end users, including new/beginning and socially disadvantaged farmers.

(ARS, ERS, NIFA)

o Deliver comprehensive scientific and technical information on climate change, 

tailored to the agricultural, forestry, and natural resource management communities.

(ARS, ERS, NIFA)

o Expand outreach and university extension and education activities in global change 

and climate, including Internet-based information systems for stakeholder access to 

information they can use. (ARS, ERS, NIFA)

o Establish partnerships with other Federal agencies such as NOAA, NASA, NSF, and 

the Environmental Protection Agency and international research agencies, such as the 

Consultative Group on International Agricultural Research (CGIAR) System for 

supporting cutting edge discovery, learning, and outreach programs. (ARS, ERS, 

NIFA)

o Enhance remote sensing methods to assess impact of climate change on crop 

production. (ARS, NASS)

o Provide vulnerable communities with information and tools that allow them to 

improve sustainability of agricultural practices and adapt to climate changes. (ARS, 

NIFA)

Responding to Climate and Energy Needs

SUBGOAL 2B. Bioenergy/Biofuels and Biobased Products

CHALLENGE: The Environmental Protection Agency (EPA) has finalized a rule 

implementing the long-term renewable fuels mandate of 36 billion gallons by 2022, established 

by Congress. The Renewable Fuels Standard requires biofuels production to grow from 

11.1 billion gallons in 2009 to 36 billion gallons in 2022, with 21 billion gallons to come from 

advanced biofuels. About 24 million acres of dedicated feedstock crops will be required to 

produce these advanced biofuels. Increasing renewable fuels will reduce dependence on oil by 

more than 328 million barrels a year and reduce greenhouse gas emissions by more than 138 

million metric tons a year when fully phased in by 2022. By 2015, 5.5 billion gallons of 

advanced biofuels is required. Strategic research, demonstration, commercialization, extension, 

and education programs are needed to meet these national goals. The REE mission area takes 

into consideration the advice and recommendations received from outside sources, including the 

Biomass Research and Development Initiative Technical Advisory Committee and the National 

Agricultural Research, Extension, Education, and Economics Advisory Board and Renewable 

Energy Committee.

Feedstock production systems for the production of bioenergy and other bio-based products 

create new and diverse economic opportunities for rural communities. Developing, sustaining, 

and expanding these systems will rely on multi-disciplined scientific and technical expertise, 

sound business practices, and a well-trained workforce.
14

Climate, water, natural resource management, and energy development face interrelated 

challenges. Long-term sustainability of resources hinges on the knowledge base established by 

appropriate research, education, and extension programs.

REE ROLE: Lead global agricultural innovation to achieve energy efficiency and 

independence by integrating economically, environmentally, and socially sustainable 

regional-based biomass production systems into existing agricultural systems. Develop

complete bioenergy supply chains that rely on agricultural production to provide clean 

biobased energy and rural economic development. Challenge our scientists to invent and 

develop new technologies to meet our Nation’s energy needs.

STRATEGIES AND ACTIONS:

Increase biomass production efficiency to reduce production and biorefinery costs: 

conduct biomass plant improvement research and development to provide feedstocks for 

advanced biofuels and biobased products. Develop and apply understanding of the 

molecular basis for key plant traits and improving germplasm and varieties for energy 

crops; develop regionally-based sustainable new feedstock production systems for 

bioenergy feedstocks; and develop feedstock logistics and conversion technologies suitable 

to near-farm scales.

Actionable items

o Implement and leverage the five established USDA Regional Biomass Research 

Centers and NIFA-funded regional bioenergy delivery systems and 

bioenergy/bioproduct development projects, in cooperation with Forest Service 

Research and Development and other external resources, to effectively integrate 

knowledge about more sustainable crop and forest production bioenergy systems.

(ARS, NIFA, Forest Service)

o Identify new genes that control biomass and develop improved germplasm for 

bioenergy feedstocks. (ARS, NIFA) 

o Protect traditional germplasm in native plants through partnership with ARS, APHIS, 

and other Federal agencies. (ARS)

o Conduct research on near-farm scale conversion technologies for advanced biofuel 

production that can accommodate feedstock flexibility. (ARS, NIFA)

o Conduct and integrate research to reduce risks and improve the profitability and 

sustainability of first- and second-generation biorefining, including development of 

co-products as biobased chemicals and other high-value products (e.g., glycerol-based 

polymers). Integrate bioenergy research with research on other renewable energy 

production, climate change, environmental improvement, food, and other biobased 

production, to diversify use of the rural landscape. (ARS, NIFA)

o Identify and develop woody biomass production systems that supply bioenergy 

production while improving forest health and sustainability. (NIFA, Forest Service)
15

Incorporate biomass and dedicated feedstock crops into existing agriculture, forestry, and 

agroforestry-based systems to increase diversity of the rural economy and sustainable land 

management.

Actionable items

o Engage and use extension system in advancing knowledge in all aspects of bioenergy 

production, use, and conservation, to producers and end-users, including underserved 

and minority communities. (ARS, NIFA)

o Develop cost-effective waste-to-energy systems (using animal manures, crop and 

forest residues, and other residuals as feedstocks) to produce distributed heat and 

power. (ARS, NIFA)

o Expand effective communication and information-sharing mechanisms, including the 

implementation of educational curricula, to prepare the needed workforce. (NIFA)

o Develop on-farm utilization of biorefinery co-products. (ARS, NIFA)

o Target multi-functional landscapes. (ARS, NIFA)

Address the uncertainties of expanded biomass and biofuel production to achieve benefits 

and avoid negative impacts on rural communities, economies, ecosystem services, and

production of food, feed, and fiber. Develop biophysical models to evaluate the impacts of 

commercial-scale bioenergy feedstock production systems and policies on long-term 

productivity and other ecosystem services provided by underlying natural resources. 

Develop the statistical information base and analytic capacity to understand and model 

economic, social, and environmental benefits and impacts of biofuel production and 

bioenergy-related policies.

Actionable items

o Develop short- and long-term projections for crop and livestock production, prices, 

and trade and evaluate implications of bioenergy production for farm income, 

commodity program budget expenditures, food prices, and other indicators of farm 

performance. (ERS)

o Develop models of bioenergy production, which incorporate social, economic, and 

environmental factors in order to identify sustainable outcomes. (ERS)

o Continue expanding current economic and biophysical research projects (e.g., the 

Greenhouse gas Reduction through Agricultural Carbon Enhancement tool and the 

Conservation Effects Assessment Project [CEAP] Water Assessment Study) to 

include dedicated bioenergy feedstocks and linkages to outcomes on resource use, 

environmental quality (e.g., long-term productivity and ecosystem services provided 

and greenhouse gas emissions). (ARS, NRCS)

o Conduct studies to examine Federal policy and identify action steps to develop more 

sustainable production systems, which create reliable rural development and avoid 

unintended environmental consequences. (ERS) 

GOAL 3. Sustainable Use of Natural Resources

CHALLENGE: Technologies and management prescriptions need to be developed that produce 

needed agricultural and forest products while sustaining the natural resources that support their 

development. Research, education, and extension programs that improve soil, air, and water 

resources while supporting agricultural and forest production on working lands have been the 
16

hallmark of USDA for more than a century. Climate, water, and natural resource management 

face interrelated challenges. Long-term sustainability of resources hinges on the knowledge base 

established by appropriate research, education, and extension programs.

REE ROLE: REE develops and delivers the scientific knowledge base to address 

sustainable use of natural resources and the environment, including soil, air, and water 

resources.

Sustainable Use of Natural Resources

SUBGOAL 3A. Water Availability: Quality and Quantity

CHALLENGE: As the population continues to increase across the U.S. and around the world, 

there is a growing demand for safe, reliable sources of water to meet the needs of Earth’s diverse 

and expanding population. In many parts of the world, issues of water availability and safety are 

central to ensuring international food security and political stability. In the U.S., rising demands 

for water to support energy sector growth, sustain environmental flows (i.e., ecosystem services), 

and satisfy the water-rights claims of Native Americans, present new challenges for agricultural 

water conservation. Especially in light of alterations to the supply and demand for water 

predicted with climate change, farmers, ranchers, and rural communities will be increasingly 

susceptible to these new competing demands, as well as to a mounting pressure to provide more 

water for urban and urbanizing areas at the expense of (surface and ground) water that currently 

supports agriculture and rural communities. While historically, drought and the reliability and 

safety of rural and agricultural water supplies were of concern primarily in the Western states, 

issues of agricultural water security have become a national challenge. In many areas, expanding 

urban populations and rising demands for water from non-agricultural sectors now encroach on 

water supplies traditionally reserved for irrigated agriculture. In other areas, ground and 

irrigation water supplies are being depleted or contaminated by agricultural use. Shifts in the 

allocation and safety of these water resources could have dramatic impacts on the long-term 

supply of food, feed, and fiber in the U.S.

REE ROLE: Develop and provide the best available science and technology to inform 

decisionmaking and improve practices on water conservation, use, and quality.

STRATEGIES AND ACTIONS:

Foster a watershed/landscape-scale approach that encourages place-based agricultural 

water management and sustains U.S. natural resources, agriculture, and rural communities 

in the face of competing water demands.

Actionable items

o Improve the observational capability and data accessibility of ARS Benchmark 

Watersheds and Experimental Ranges (BW&ER), including updating and 

maintaining the Sustaining the Earth’s Watersheds Agricultural Research Data 

System (STEWARDS) database. (ARS)

o Develop the Long-Term Agro-Ecosystem Research (LTAR) network as a platform 

for agricultural research to sustain local and global food supply and security (ARS);
17

encourage government-university research and outreach partnerships in the LTAR 

network with competitive funding opportunities for LTAR. (NIFA)

o Connect ARS LTAR and BW&ER networks with the Forest Service Experimental 

Forests and Ranges (EF&R) network to investigate climate change influences on 

water resource management and agricultural sustainability across gradients of natural, 

managed, agricultural, and urban ecosystems. (ARS, Forest Service)

o Develop a reference baseline for measuring changes in production capacity in 

response to changing environmental conditions and management decisions. (ARS)

o Identify universal hydro-climatic descriptors of watersheds and determine the 

significance of historical trends in temperature, precipitation, and runoff across North 

America. (ARS, Forest Service)

o Continue development and validation of ARS watershed and management simulation 

models to treat a broader spectrum of conditions, management and conservation 

scenarios, ecosystem services, economics, and crop production (including grass filter 

strips, terraces, and other practices. (ARS)

o Evolve USDA REE water programs to address regional, place-based water initiatives 

(Chesapeake Bay, Great Lakes, etc.). (NIFA, NRCS, Forest Service)

o Expand the National Agricultural Library’s (NAL) Water Quality Information Center 

to provide USDA watershed research results. (ARS, Forest Service)

o Evaluate changes in watershed health and function in response to management, 

natural disturbances, and atmospheric deposition. (ARS, NIFA, Forest Service)

o Standardize methods and protocols for intensively monitored watersheds. (ARS, 

NIFA, Forest Service)

o Compare model output with field measurements to evaluate the validity of 

assessments of Farm Bill conservation practices and programs to provide real 

environmental benefits. (ARS)

Provide research and decision support tools to: increase the effectiveness of USDA 

conservation policies, programs, and practices; raise the ratio of conservation 

benefit/conservation investment; and facilitate the transfer of research advances to 

practical implementation.

Actionable items

o Develop new and/or improved conservation practices, and strategies for practice 

placement, to maximize conservation benefits at the watershed scale while 

minimizing conservation investments. (ARS, NIFA, NRCS, Forest Service)

o Develop user-friendly decision support tools for practitioners (conservationists, land 

managers, farmers, ranchers, and the tribal and reservation communities) that use 

state-of-the-art USDA research to rapidly and effectively solve practical problems at 

the field, landscape, or watershed scale. (ARS, NIFA)

o Improve our understanding of the aggregate effects of conservation practices at the 

watershed scale. (ARS, NIFA, NRCS, Forest Service)

o Develop a better understanding of the economic impacts and social drivers of 

conservation practice adoption in rural, agricultural, and urbanizing watersheds.

(ARS, ERS, NIFA, Forest Service,)

o Utilize the Partnership Management Team (PMT) to integrate ARS and NIFA 

research with NRCS and Forest Service program delivery. Work with Forest Service
18

to develop collaboration between researchers and managers using the experimental 

watershed network. (ARS, NIFA, NRCS, Forest Service) 

Improve the efficiency of water use (particularly for irrigation) and develop and extend 

science and technology to achieve the maximum ―crop per drop‖ for agricultural goods 

and services.

Actionable items

o Conduct the Farm and Ranch Irrigation Survey for the year 2013 to provide needed 

information concerning crop water use, irrigation system and water management 

practices, water quantity by sources, and other information necessary to evaluate 

agriculture’s impact on USDA goals for water resource management and sustaining 

rural economies. (NASS)

o Invest in research, development, and extension of new irrigation techniques and 

management of limited water resources, including strategies for water reuse or 

desalination of brackish water. (ARS, NIFA) 

o Promote research addressing the economics of conserving ―irrigation production 

systems,‖ i.e., the integration of conserving on-farm water-management practices 

with high-efficiency irrigation application systems, encouraging both reduced applied 

water and crop-water consumption while maximizing farm income. (ERS, NIFA) 

o Support research and extension on innovative crop management systems and 

integrated crop-livestock systems that may achieve dramatic improvements in water 

conservation and quality and other ecosystem services (―transformative‖ systems in 

the sense of NRC 2010). (NIFA)

o Continue work with water conservation efforts with a focus on socio-economic 

research and extension to increase adoption of appropriate practices and technologies 

(including alternative crops) to achieve increased water conservation at the watershed 

scale. (NIFA)

o Conduct life cycle analysis of crop/livestock systems to determine optimum water 

and energy inputs and geographic considerations for sustaining food, feed, fiber, and 

fuel productivity in the USA. (NIFA)

Expand and/or elevate existing, and encourage new, Federal partnerships to promote water 

conservation at watershed, landscape, and regional scales in agricultural, rural, and 

urbanizing communities, and reduce the impacts of climatic disturbances.

Actionable items

o Propose new partnerships with the Department of the Interior Bureau of Reclamation 

(BOR), United States Geological Survey (USGS), and EPA to address areas of 

common interest, conduct cooperative research, and promote adoption of research 

outcomes to deliver/conserve water. (ARS, NRCS, Forest Service,)

o Continue cooperation with NOAA and other Federal agencies via the National 

Integrated Drought Information System (NIDIS) to promote place-based research and 

extension aimed at improving community drought preparedness. (ARS, ERS, NIFA, 

NRCS, Forest Service)

o Continue to explore and expand potential partnerships with EPA, the Army Corps of 

Engineers (USACE), USGS, the Bureau of Land Management (BLM), the 

Forest Service, and other Federal, state, or local agencies or entities to improve water 
19

resource management on working lands at the watershed scale. (ARS, NIFA, NRCS, 

FSA, Forest Service)

Transform youth water education to support USDA’s vision for the future of water 

management. 

Actionable items

o Integrate non-traditional approaches to water education (social, cultural, artistic, etc.) 

with traditional biophysical approaches in all new water curriculum development 

funded through NIFA grant programs. Highlight concepts such as water ―footprints‖ 

and ―life cycle analysis‖ in new curricula to create a new appreciation for water 

among young people. (NIFA)

o Support the development of educational materials on the water cycle and water 

conservation through the Natural Inquirer and Forest Service Conservation Education.

(Forest Service)

o Support partnerships that integrate new approaches to water education. (REE, Forest 

Service)

Provide research and decision-support tools to maintain water availability and safety in a 

changing global environment.

Actionable items

o Identify components of the hydrologic system that are most sensitive to projected 

climate variability and determine their potential impacts on agricultural productivity, 

natural resources, and land conservation. (ARS, NIFA, NRCS, Forest Service)

o Estimate the impacts of projected climate variability on regional water availability 

and quality (including sediment yield) across diverse physiographic regions of the 

U.S. and their associated implications for conservation needs and agricultural 

productivity. (ARS, NIFA, NRCS, Forest Service)

o Develop climate-informed decision support systems to sustain U.S. agricultural 

production capacity and natural resources in light of climate-driven changes in water 

availability. (ARS)

o Develop regional use estimates of the ―water footprint‖ (surface and groundwater) of 

agricultural production systems. (NIFA)

o Determine social, economic, and/or cultural circumstances or practices that promote 

or serve as barriers to reducing the water footprint of agricultural production, and 

develop outreach/extension programs that lower these barriers and promote the 

adoption of water conserving practices and technologies in rural and agricultural 

communities. (NIFA)

Develop and refine research and decision-support tools to understand the water 

implications of USDA’s evolving bioenergy strategy to contribute to the development of 

sustainable bioenergy production systems.

Actionable items

o Evaluate the water implications of bioenergy feedstock production at watershed, 

landscape, and regional scales to reduce conflicts between food and fuel production 

and the provision of ecosystems services, particularly the availability of adequate 

supplies of clean, fresh water. (ARS, ERS, NIFA, Forest Service)
20

Provide statistical data to support management of productive working cropland.

Actionable items

o Provide additional data on crop conditions, soil moisture, and/or drought monitoring 

by publishing cropland data layer technology for all 48 contiguous states. (ERS, 

NASS)

o Summarize the 2012 Census of Agriculture by six-digit Hydrologic Unit Code and 

publish results in a Census Watershed Publication to enable better management of 

water resources at the local level. (ERS, NASS)

o Conduct research and explore new scientific and technological advances to enhance 

the quality, accuracy, and consistency of statistics, specifically in the areas of 

geographic information systems and remote sensing. (ERS, NASS)

o Evaluate trends and changes in production agriculture and adjust the Farm and Ranch 

Irrigation Survey and Agricultural Resource Management Survey programs 

accordingly. (ERS, NASS)

Sustainable Use of Natural Resources

SUBGOAL 3B. Landscape-Scale Conservation and Management

CHALLENGE: Well-managed agricultural, forest, and range land supplies important nonmarket goods and services for our environment. Farms, forests, and ranch lands provide food 

and cover for wildlife, help control flooding, reduce erosion, protect wetlands and watersheds, 

improve water quality and quantity, store carbon, and maintain air quality. They can absorb and 

filter wastewater and provide groundwater recharge. Well-managed agricultural lands also 

provide cultural and aesthetic benefits. With a rapidly increasing world population and 

expanding global markets, saving American farmlands, ranches, and forests is a prudent 

investment in the world’s food, fiber and energy supply and the Nation’s economic future. 

Landscapes are a foundation of rural economic opportunities and focal points for addressing

issues through a concentration of available resources that integrate leading-edge science, 

including assessments, adaptation tactics, monitoring, predictive models, and management 

actions. Science and technology development within landscapes is collaborative in nature and 

utilizes past and current work. Working across landscape levels enables focused investments in 

land management science and technology to better meet the needs of landowners and managers. 

Effective and efficient solutions will be evaluated for other landscapes.

Improved fertilizer nitrogen recommendations, optimized for production and environmental 

goals, as well as management technologies and improved models to evaluate nitrogen’s life cycle 

for agricultural systems are needed to enhance crop nitrogen use and to mitigate nitrogen losses. 

Linking these tools to policy options and evaluation of policy strategies and markets are needed 

to encourage better and more efficient management of nitrogen, potassium, and phosphorus best 

management practices.

REE ROLE: In collaboration with USDA sister agencies such as the Forest Service’s

Research and Development and the Office of Environmental Markets, develop and provide 

the best available science and technologies to inform U.S. government policies and 
21

programs and to support application of land management practices that improve the 

economic, social, and environmental sustainability of our Nation’s working farms, ranches, 

and forests. 

STRATEGIES AND ACTIONS:

Understand determinants of producer adoptions of conservation practices, including the 

role of markets for ecosystem services.

Actionable items 

o Provide a statistical information base on agricultural land usage and conservation 

practices as a basis for understanding the determinants of government policy on land 

use. (NASS)

o Evaluate the economic, demographic, resource, and climate issues that affect the 

adoption of conservation practices and influence the decision to participate in 

conservation programs. (ERS) 

o Evaluate the effectiveness of a range of agri-environmental program designs for 

promoting the provisions of ecosystem services from agriculture, including financial 

incentives, compliance, and market-based approaches. The research would include 

an assessment of the implications of multiple program objectives, such as water 

quality, wildlife habitat, and farm income, on policy design. (ERS, NIFA) 

o Develop a coordinated agenda for research to identify and measure ecosystem 

services that different conservation and management practices and systems can 

produce. (ARS and NIFA)

o Promote implementation of the lessons learned from two synthesis projects of thirteen 

Conservation Effects Assessment Project (CEAP) watersheds that evaluated 

conservation practices and socioeconomic implications across the U.S. (NASS, 

NIFA, NRCS)

o Compile a complete database of the current research on ecosystem services and 

closely related topics and synthesize research activities from both the NRCS special 

emphasis watersheds and associated ARS benchmark watersheds to develop decision 

support for appropriate conservation practice application in critical watersheds.

(ARS)

o Identify and analyze the barriers to sustainable ecosystem service management and 

formulate solutions to overcome these barriers, including those encountered by 

new/beginning and socially disadvantaged farmers and ranchers. (NIFA) 

o Synthesize the suite of ecosystem services models and evaluate their applicability and 

effectiveness for use in environmental credit trading markets. (ARS)

o Focus science and technology development efforts at the landscape level, targeting

place-based conservation and management options. (ARS, NIFA, Forest Service) 

Develop an integrated (air, water, soil, biomass, wildlife) / multidisciplinary program that 

takes a full-accounting approach to conservation, improved efficiency, control technologies, 

environmental credit trading, and process-based models for reactive nitrogen.

Actionable items

o Fund competitive programming to update USDA fertilizer nitrogen recommendations 

optimized for production and environmental goals, improved bioavailability of soil 
22

and applied nitrogen, control technologies to mitigate nitrogen losses, predictive and 

hindcasting tools to assess source candidates for mitigation, and improved processbased models to analyze nitrogen life cycle in agricultural systems. (NIFA)

o Fund a functional genomics and plant breeding program to understand nitrogen 

fixation in soybeans and transfer this functionality to perennial commodity crops, 

corn, wheat, and cotton, leading to reductions in nitrogen fertilizer application.

(NIFA)

o Develop a program to improve efficiency of feed conversion of crude protein in the 

animal gut and evaluate new feedstocks as sources of amino acids for animal 

production, such as waste streams from biofuel production, to reduce the nitrogen and 

phosphorus in animal waste. (ARS, NIFA)

o Create a program to develop bioproduct processes that are cost-effective and that do 

not adversely impact the environment. For example, utilize byproducts in waste 

streams from biofuel production as a concentrated source of nitrogen for feed or 

fertilizer. (ARS, NIFA)

o Develop and evaluate policy strategies and markets to encourage better and more 

efficient management of nitrogen (e.g., trade, conserve, and remediate reactive 

nitrogen). (ERS, NIFA)

o Develop programming on a holistic systems approach, both toward understanding 

nutrient dynamics in transformative (e.g., organic, integrated crop-livestock, and 

alternative livestock) sustainable systems, and apply this knowledge in extension and 

education programs, including consideration of culturally appropriate foods. (ARS, 

NIFA)

Explain the determinants of socio-economically viable and environmentally sound

livestock, forage, and forest production systems

Actionable items

o Develop a program to evaluate the impacts of cellulosic energy production on foragebased livestock systems. (ARS, NIFA)

o Develop knowledge to understand the adaptation requirements of forage-based 

livestock systems to extreme climatic variability (e.g., responsive systems to drought, 

responsive systems to temperature increases, and how to manage risk). (ARS, NIFA)

o Develop inventory and monitoring tools to optimally control the spread of invasive 

weeds in terms of reducing productivity losses to wildfire, altering wildlife habitats, 

and loss of biodiversity. (ARS, NIFA)

o Develop a program to evaluate more complex mixtures (e.g., functional groups) of 

pasture grasses and legumes as a risk reduction strategy and to optimally produce 

biomass for bioenergy production. (ARS)

o Develop a program to investigate the impacts on the phenology and spread of 

poisonous plants due to changing climate. (ARS) 

o Through integrated research, education, and extension work, develop agriculture and 

forest production systems that are adapted to climate variability. (NIFA)
23

Advance the use of agroforestry as a viable agricultural option for meeting the multiple 

demands of food, fiber, feed, fuel, and natural resource conservation from these lands. 

Actionable items

o Develop knowledge and technologies to improve the application of agroforestry 

practices and principles in protecting water and soil resources; building landscapelevel resiliency to climate change impacts; reconnecting ecological services across 

rural-urban lands and communities; providing innovative and sustainable bioenergy 

production systems; creating multi-purpose landscapes that can produce food, fiber, 

and energy, and protect natural resources. (ARS, NIFA, Forest Service) 

Manage agricultural watersheds and landscapes to improve the delivery of ecosystem 

services while sustaining or enhancing agricultural production.

Actionable items

o Develop robust indicators, statistics, and biome-specific metrics of the: 1) spatial 

connectivity of landscape elements; 2) quantity and quality of ecosystem services 

provided by agricultural landscapes; and 3) commodity values of ecosystem services 

delivered from working lands in tandem with Council on Environmental Quality 

efforts. (ERS, NASS, NRE, Office of Environmental Markets (OEM))

o Partner with other Federal agencies, such as NOAA, NASA, and EPA, to develop an 

integrated management plan for agricultural watersheds and landscapes. (NRE, OEM, 

REE, and Forest Service)

GOAL 4. Nutrition and Childhood Obesity

CHALLENGE: Childhood obesity has more than tripled, and adult obesity has doubled since 

1980. The prevalence of obesity among children aged 6 to 11 years increased from 6.5 percent in 

1980 to 19.6 percent in 2008. The prevalence of obesity among adolescents aged 12 to 19 years 

increased from 5.0 percent to 18.1 percent (CDC). At the same time, many sub-populations, 

including low-income and elderly populations, suffer from food insecurity, do not have adequate 

micronutrients, or face limited access to healthy food choices. Obesity in itself is a complex 

issue with no simple solution or answer. Preventive nutrition and physical activity strategies 

proven to be efficacious are required to reduce the incidence and prevalence of obesity and 

related chronic diseases and thereby lower health care costs. Elimination of malnutrition will 

also be a significant challenge. Establishing a balance of food availability and adequate nutrition 

will only be accomplished by changing not only the food supply and the food environment, but 

also behaviors. This challenge will require research, monitoring, program evaluation, and 

translational activities to be conducted on a substantial scale in order to produce reliable results 

that can inform policies, nutrition assistance programming, and education/extension programs. 

The necessary scale is achieved through close coordination among REE agencies and strategic 

Federal and public-private partnerships. 

REE ROLE: Build the evidence base for food-based and physical activity strategies and 

develop effective education/extension translational activities to promote health and reduce 

malnutrition and obesity in children and high-risk populations.
24

STRATEGIES AND ACTIONS:

Link food systems to beneficial human health outcomes in the U.S. and internationally.

Actionable items

o Enhance the health-promoting quality of the food supply by connecting food 

production with human health outcomes. (ARS)

o Determine the availability and affordability of food for American consumers, 

including the impact of USDA food assistance. (ERS)

o Identify the economic determinants of food choices, including the impact of policies 

to improve diets, using carefully designed data collection to capture the impact of 

natural policy experiments. (ERS)

Conduct nutrition monitoring of the American population and evaluate policies influencing 

nutritional health.

Actionable items

o Determine food purchase, food/nutrient consumption, and dietary patterns of 

Americans. (ARS, ERS)

o Determine food purchase, food/nutrient consumption, and dietary patterns of ―at-risk‖ 

populations in the U.S. (ARS, ERS)

o Compile and provide U.S. food composition data for essential nutrients and 

biologically active food components. (ARS)

o Conduct analyses of the benefits and costs of policies to change behavior in order to 

improve diet and health, including nutrition education, labeling, advertising, taxes and 

subsidies, and regulation. (ERS)

Build the scientific basis for dietary guidance for health promotion and disease prevention 

across the life cycle.

Actionable items

o Identify the roles of foods, nutrients, dietary patterns, and physical activity in 

promoting health and preventing disease across the life cycle. (ARS, NIFA)

o Build the scientific evidence base for updating national dietary standards and 

guidelines. (ARS)

o Determine mechanisms, including interaction with genetic or modification to 

epigenetic factors, by which nutrition promotes healthy development and function 

from conception to old age. (ARS)

Develop and extend approaches to prevent obesity and related diseases, including 

translational activities to promote behavior change related to healthy eating and physical 

activity.

Actionable items

o Determine the causes and consequences of obesity and related disorders. (ARS, 

NIFA)

o Develop, evaluate, and support the implementation of effective strategies to 

encourage healthy choices that enhance health and prevent obesity/related diseases at 

the individual and community levels. Economic evaluations include controlled 

experiments testing alternative policies in real world contexts and translational 
25

activities that utilize the nationwide capacity of the Cooperative Extension Service 

and the Expanded Food and Nutrition Education Program focusing on high-risk 

groups. (ARS, ERS, NIFA)

o Evaluate the effectiveness of the Dietary Guidelines for Americans (DGA) and 

nutrition education programs built upon the DGA in preventing obesity and 

promoting health. (ARS, NIFA)

o Improve and evaluate the effectiveness of existing educational programs to elevate 

the health of low-income families and youth through nutrition, physical activity, and 

food resource management. (NIFA)

o Strengthen established strategic partnerships, such as the National Collaborative for 

Childhood Obesity Research partnership with the NIH, CDC, and the Robert Wood 

Johnson Foundation, to maximize impact. (ARS, ERS, NIFA)

o Provide the Cooperative Extension System health and wealth initiative ―Small Steps 

to Health and Wealth‖TM program that motivates youth and adult consumers to 

implement behavior change strategies that simultaneously improve their health and 

personal finances. (NIFA)

GOAL 5. Food Safety

CHALLENGE: The production, processing, and distribution system for food in the U.S. is a 

diverse, extensive, and easily accessible system. This open system is vulnerable to the 

introduction of contaminants through natural processes and global commerce, and by intentional 

means. Thus, the food supply must be protected from pathogens, toxins, and chemical 

contamination that cause disease in humans. Outbreaks of Escherichia coli O157:H7 and 

Salmonella have attracted major media attention and drawn criticism of current food safety 

practices and policies. The Centers for Disease Control and Prevention estimates that there are 

48 million foodborne illnesses annually in the United States, resulting in approximately 128,000 

hospitalizations and 3,000 deaths. While estimates of the economic burden vary widely, it is 

clear that the burden is significant, and potentially as large as $6 billion annually, including lost 

productivity and loss of life. Food safety strategies require research, education, and extension 

efforts in a holistic approach to the food chain because hazards can enter the chain at any point. 

An integrated approach should consider food safety as a continuous process from production, 

through harvesting and processing, to retail and the consumer. REE research provides the means 

to ensure that the food supply is safe and secure for consumers, and that food and feed meet 

foreign and domestic regulatory requirements. Since many foods are imported into the U.S., 

food safety is considered a global issue. The REE research program involves both national and 

international collaborations through formal and informal partnerships. Accomplishments and 

outcomes can be utilized in national and international strategies delivering research results to 

regulatory agencies, commodity organizations, industry, and consumers. Using REE’s strengths 

in education and extension will facilitate the delivery of research results to our stakeholders and 

consumers. Specifically, education and extension efforts targeted toward safe food harvesting 

and production practices are a critical need.

REE ROLE: Provide science that informs decisions and policies that contribute to a safe 

food supply and the reduction of foodborne hazards.
26

STRATEGIES AND ACTIONS:

Provide research that helps to understand and define the microbial populations (pathogens 

and normal flora) in foods and surrounding environments.

Actionable items

o Develop approaches/designs for the analysis and interpretation of complex data on 

microbial populations. (ARS, ERS, NIFA)

o Develop approaches/designs for both microbial and population-based studies, 

monitoring of emerging pathogens, and supplying data for identified data gaps. (ARS, 

ERS, NIFA)

o Develop approaches that will evaluate the impact of intervention or management 

strategies on microbial contamination in the food continuum. This includes organic, 

conventional, and other production systems at all levels (small, medium, and large 

operations) as well as alternative harvest, processing, and marketing methods. (ARS, 

ERS, NIFA)

o Develop approaches that will evaluate the effect of conservation practices and natural 

areas (e.g. riparian habitats) on foodborne hazards and the production of safe food. 

Provide approaches for the evaluation of the role of soil and water in conservation 

and in food production (e.g. produce). This research will provide needed information 

for management decisions based on risk assessment strategies, economic factors, and 

education or extension efforts. (ARS, ERS, NIFA)

Provide research to understand the biology and behavior of foodborne pathogens.

Actionable items

o Develop specialized technologies, for example, to differentiate pathogenic from 

non-pathogenic strains, and to elucidate the differences between pathogens and 

non-pathogens. (ARS, NIFA)

o Develop a comprehensive microbial database containing molecular, physiological, 

and genetic data on each foodborne pathogen and their niche. (ARS)

o Understand the outcomes from foodborne illness, including severity and impact on 

medical costs, lost work productivity, and loss of life (economic burden). (ERS)

o Provide relevant data to regulatory agencies for use in Hazard Analysis and Critical 

Control Points programs, risk analysis (assessments, management, communication), 

labeling, persistence, and issues relative to international trade. (ERS, NIFA)

o Develop model systems that have a utility for use in risk analysis. (ARS)

Develop technologies for the detection and characterization of food supply contamination 

from microbial pathogens, toxins, chemicals, and biologics.

Actionable items

o Develop detection technologies for emerging or multiple microbial pathogens that are 

cost effective and provide the required informational detail for the determination and 

implementation of subsequent actions. (ARS, NIFA)

o Develop technologies for the rapid and sensitive detection of toxins, chemicals, and 

biologics that can be implemented for improved food safety and food defense. (ARS, 

NIFA)
27

o Develop multi-task, real-time, on/in-line inspection technologies that detect 

contaminants and quality attributes simultaneously at required line speeds. (ARS, 

NIFA)

o Develop technologies for assessing the efficacy of various processing methods to 

reduce or eliminate the toxicity in contaminated foods for human/animal 

consumption. (ARS, NIFA)

Address the food safety research, education, and outreach food safety priorities, as 

identified by the President’s Food Safety Working Group.

Actionable items

o NIFA Requests for Applications for funded projects integrate education and extension 

efforts that parallel food safety priorities. (NIFA)

o NIFA Requests for Applications for funded projects and ARS portfolios reflect 

research agenda priorities and complement respective strengths. (ARS, NIFA)

o Expand the Food Safety Information Center to provide information for food safety 

research projects and education and training materials. (ARS)

o Develop extension and educational strategies that transfer food safety information to 

our various REE stakeholders, utilizing Cooperative Extension’s capacity to translate 

research findings and extend them to decisionmakers, industry, and consumers in 

ways that lead to behavioral change. (NIFA) 

o With the FDA, address food safety, and associated regulatory, marketing, trade, and 

research activities substantially affecting public health. These partnership activities 

will assist in addressing priorities within the new Food Safety Modernization Act that 

works toward developing an integrated food safety system. (ARS, ERS, NIFA)

Develop intervention and control strategies for foodborne contaminants along the food 

production continuum.

Actionable items

o Determine the critical control points in production and processing that can be 

mitigated through the development and implementation of intervention and control 

strategies. (ARS, NIFA)

o Determine the role/effect of transportation, lairage, slaughter, harvesting, processing 

methods, storage, and equipment on pathogen survival, growth, and transfer. (ARS, 

NIFA)

o Develop mechanisms and approaches to evaluate and validate the effect of 

intervention and control strategies on food safety. (ARS)

o Develop the economic models and statistical data to understand how interventions 

might be adopted and used by various agricultural production systems. (ERS, NASS)

o Develop economically viable control and mitigation strategies, taking advantage of 

environmental, vector, and reservoir characteristics. (ARS, ERS, NIFA) 

o Provide outreach to producers and processors on intervention and control strategies, 

tailored to the associated risks and the specific audience. (NIFA)

Provide research strategies, models, and data that identify and characterize effective 

management strategies and incentives for food safety improvement and the costs and 

benefits of improved safety for public health and industry viability.
28

Actionable items

o Update and extend economic burden estimates. (ERS)

o Identify incentives for food safety investment in meat and poultry plants. (ERS)

o Identify and advance on-farm food safety practices and incentives, through education 

and Cooperative Extension outreach. (ARS, ERS, NIFA)

GOAL 6. Education and Science Literacy

CHALLENGE: Over the next decade it is expected that there will be an increase in attrition of 

the workforce in the agricultural industry and the academic sectors. These concerns are well 

founded considering that the number of students enrolling in the food and agriculture sciences is 

decreasing, and many universities have either dropped or consolidated programs at the 

baccalaureate levels. The number of students going into graduate programs has also declined 

tremendously, and if this trend continues, we will be looking at acute workforce shortages in 

these areas. The estimated average age of U.S. farmers in 2007 was 57.1, up from 55.3 in 2002 

and is about 16 years older than an American worker in general. Only about 55 percent of the 

54,000 predicted annual agriculture-related jobs between 2010 and 2015 will be filled by 

graduates of agriculture sciences, according to a report by Purdue University and NIFA. The 

economic conditions in rural areas make it difficult to attract and retain workers, particularly 

young people who leave rural areas for better social and career options. 

If America is going to hold its leadership position in the global economy, it is vital that we 

leverage the talents and skills of students across the broad spectrum of economic, ethnic, and 

social segments of our Nation. The innovative solution to feeding the world and providing for its 

energy needs will be found only in attracting students to the agricultural and natural resource

sciences and supporting their achievement.

Some factors that contribute to the difficulty in recruiting people to study and work in the 

agricultural sector include: (1) poor image and promotion of agriculture, (2) lack of innovative 

education and training initiatives, (3) elimination of agriculture subjects at the secondary levels 

that hampers early recruitment, (4) dearth of qualified science teachers from elementary to 

secondary levels or qualified trainers in higher education, (5) unclear career pathways in 

agriculture, and (6) disconnect between 2-year vocational institutions and baccalaureate granting 

institutions.
29

REE ROLE: Recruit, cultivate, and develop the next generation of scientists, leaders, and 

a highly-skilled workforce for food, agriculture, natural resources, forestry, and 

environmental systems, and life sciences to out-educate our global competitors.

STRATEGIES AND ACTIONS:

In cooperation with Land Grant Universities and other Federal agencies, develop a 

well-integrated and coordinated approach to recruit minority and non-minority students; 

research, education, and Cooperative Extension professionals; pre-collegiate, 

undergraduate, and graduate students. 

Actionable items

o Increase Science, Technology, Engineering, and Math (STEM) focus at the 

elementary, middle school and high school levels that is highly relevant to agriculture 

sciences; combine formal and informal learning strategies, and explore collaboration 

within and outside of USDA. (ARS, ERS, NASS, NIFA)

o Utilize pre-collegiate programs, formal and non-formal internships and 

apprenticeships to increase awareness to all youth about career opportunities in 

agriculture. (NIFA)

o Develop 2-year degree courses at vocational/technical community colleges. (NIFA, in 

collaboration with the National Science Foundation [NSF] Advanced Technology 

Education [ATE] program)

o Develop and promote a scholarship program for 2-year vocational and baccalaureate 

levels, combined with agricultural industry internships and/or academic research 

internships; explore collaboration within and outside of USDA. (ARS, ERS, NASS, 

NIFA)

o Utilize fellowship and traineeship for graduate and postgraduate studies in agriculture 

shortage areas; and increase the visibility of these programs through a variety of 

media, Web-based or online communications materials, including collaboration 

within USDA agencies and with other Federal agencies such as the National Science 

Foundation (NSF), the National Park Service (NPS), and the National Oceanic and 

Atmospheric Administration. (ARS, ERS, NIFA, Forest Service)

Leverage technology and innovation to distribute business tools, information, and 

resources and use non-formal education programs, outreach, 4-H, and other youth 

development programs to transfer knowledge and technology.

Actionable items

o REE agencies will increase collaboration with extension communities of practice that 

target youth audiences, including the Youth Science, Engineering, and Technology 

for Life community. (NIFA)

o Explore potential partnerships with foundations or other organizations to provide 

opportunities for high school science students to work on short-term science and 

innovation projects in USDA research labs in support of STEM initiatives. (NIFA)

o Collaborate on the annual 4-H National Youth Science Day to highlight USDA 

resources relevant to the science day topic and other relevant opportunities to 

showcase USDA resources. (NIFA)
30

o 4-H National Headquarters and Agriculture in the Classroom (AITC) will work 

strategically with USDA in developing curricula and learning opportunities that align 

with USDA priorities, which reach youth in non-formal and formal settings. (NIFA)

o Increase STEM educational content, aligned with respective state standards, of the 

Agriculture in the Classroom (AITC) Program’s National Resource Directory 

electronic database. (NIFA)

o Complete a revised Food and Fiber Systems Curriculum Framework for use as a tool 

by teachers, curricular specialists, and industry professionals to promote agricultural 

science literacy among K-12 students. (NIFA)

Strengthen the science capacity at minority-serving institutions—including 1890 Land 

Grant Universities, the 1994 Tribal Colleges and Universities, and Hispanic-Serving 

Institutions (HSIs) (explore collaboration with Federal agencies—NIFA, ARS, ERS, Forest 

Service, NPS, NSF, NOAA, the Department of Education, the Department of Labor, the 

National Aeronautics and Space Administration, and the National Institutes of Health).

Actionable items

o Support research and research infrastructure and develop the culture for meaningful 

collaborations with other institutions and Federal research laboratories. (NIFA)

o Promote training and development of students for a competitive and skilled 

workforce or further education. (NIFA)

o Provide opportunity for faculty development to enhance teaching skills and/or build 

competitive grant writing capacity. (NIFA)

Provide educational and training opportunities to beginning farmers and ranchers. 

Actionable items

o Provide education, training, internships, and mentorships to beginning farmers and 

ranchers. (collaboration with NIFA, Office of Advocacy and Outreach (OAO), Office 

of Tribal Relations (OTR), FSA, and other agencies)

o Develop and disseminate new technologies and information that will help beginning 

farmers and ranchers succeed. (NIFA in collaboration with other USDA agencies)

o Through Cooperative Extension, eXtension, community-based, and nongovernmental agencies, provide beginning farmer and rancher educational series 

focused on hands-on learning related to plant and livestock production. Develop a 

series of educational modules for new landowners/beginning farmers and ranchers.

(NIFA)

Enhance existing partnerships with land-grant universities and other educational 

organizations to identify and assist minority producers, beginning farmers, and women 

producers and remove program barriers to participation.

Actionable items

o Enhance access to government programs and grants to educational organizations that 

identify and assist minority producers, beginning farmers, and women producers.

(NIFA, OAO, RD)

o Increase leveraging resources to address the unique needs of minority producers, 

beginning farmers, and women producers. (NIFA, OAO, RD)
31

GOAL 7. Rural-Urban Interdependence and Prosperity

CHALLENGE: Rural America has witnessed enormous change over the course of the last 

century. As agriculture’s contribution to employment and income declined, many rural areas 

shifted to other activities, including manufacturing and service-, recreation-, and retirementbased industries. The response to these changes reflects rural America’s great geographic, 

economic, and social diversity: while many communities well-positioned to take advantage of 

new opportunities have increased in vitality, many others have lost their economic reason to exist 

and have experienced various degrees of distress, including persistent outmigration, poverty, 

and/or stagnant labor markets. In some cases, communities have ceased to exist altogether. 

How rural areas position themselves to better compete in a global environment where skills, 

knowledge, and innovation are key drivers of economic growth and prosperity is a central 

element in the debate about the future of rural America.

REE ROLE: Provide effective research, education, and extension that inform public and 

private decisionmaking in support of rural and community development.

STRATEGIES AND ACTIONS: 

Conduct research, education, and extension to help farmers, ranchers, and rural 

communities take advantage of new and growing market opportunities (such as local and 

regional food systems and organic agriculture) and technologies (such as broadband, green 

technologies, and renewable energies) and spur much-needed innovation.

Actionable items

o Investigate mechanisms for overcoming the impediments to broadband technology 

access and adoption in rural areas. (ERS)

o Identify and transfer knowledge about the characteristics and factors that contribute to 

the success of local and regional food systems and their contribution to economic 

investment and development and human well-being. (ERS, NIFA)

o Develop and share knowledge to help stakeholders implement successful organic 

production and marketing systems in response to growing consumer demand. (ARS, 

ERS, NASS, NIFA)

o Develop and share knowledge about emerging green technologies and green economy 

initiatives, and their potential contributions for economic development in rural areas.

(ERS, NIFA)

o Implement and leverage the five established USDA Regional Biomass Research 

Centers (RBRC) and NIFA-funded regional bioenergy delivery systems and 

bioenergy/bioproduct development projects, in cooperation with Forest Service 

Research and Development and other external resources, to effectively integrate 

knowledge about more sustainable crop and forest production bioenergy systems.

(ARS, NIFA)

o Conduct integrative scientific work that combines research, education, and extension 

efforts to identify and develop cost effective, sustainable uses of woody biomass for 

bioenergy production. (NIFA)

o Support development of educational programs/curricula to build rural America’s 

capacity to work with bioenergy/bioproduct development and delivery. (NIFA)
32

Support information and technology transfer and translational research, 

―transformational extension,‖ to inform citizens and enable and support vibrant and 

resilient communities.

Actionable items

o Develop partnerships with community/economic development organizations to 

promote adoption of USDA research outcomes for commercialization by rural 

entities. (ARS, ERS, NIFA)

o Help small businesses develop partnerships with colleges, universities, and/or Federal 

laboratories for research, development, and commercialization of new technologies, 

products, and services to enhance the vitality of rural communities. (ARS, NIFA)

o Improve rural data dissemination through the creation of new electronic geographic 

information systems. (ARS, NIFA)

o Provide information services to rural communities, officials, organizations and 

citizens through the NAL’s Rural Information Center. (ARS)

o Utilize Cooperative Extension system behavioral science expertise in assisting 

individuals to adopt new transformational behaviors. (NIFA)

o Support integrated grant projects that translate bioenergy/bioproduct research findings 

into extension and education programs. (NIFA)

o Improve the rural communities’ access to personal financial data (Financial Health 

Index Project, PowerPay-debt reduction program) available through NIFA’s Family 

and Consumer Economics Web site. (NIFA)

Establish the determinants of rural prosperity and develop indicators to measure regional 

assets and performance.

Actionable items

o Provide personal financial management resources that will teach financial planning, 

management, and recovery through partnership with the Financial Literacy Education 

Commission (FLEC), Federal, local, and state organizations (NIFA, U.S. Treasury), 

and build public and private decisionmaking by implementing the Family and 

Consumer Economics Financial Capability Framework: 1) financial knowledge and 

understanding; 2) financial skills and competence; and 3) financial responsibility.

(NIFA)

o Produce new information on the role of community institutions and assets in 

supporting rural business innovation and growth development through national 

surveys of rural community leaders and business establishments. (ERS, RD)

o Establish the interactions between community assets and business vitality and growth, 

with emphasis on the drivers of growth in distressed and low-asset rural areas. (ERS, 

NASS)

o Provide IRS Volunteer Income Tax Assistance Program (VITA) through NIFA’s state 

and local partners, Cooperative Extension, and the land grant university system.

(NIFA)

o Increase awareness and capacity building of rural communities’ response to natural 

and/or man-made disasters by increasing individual, family, small business, and 

community disaster preparedness through extension education, as well as 

collaboration with other agencies and volunteer organizations. (NIFA, FEMA)
33

o Produce new knowledge about the economic and social forces that encourage return 

migration to geographically disadvantaged (remote, low-amenity) rural areas, with 

emphasis on the role of local institutions and community leadership, as well as on the 

social, cultural, and educational opportunities. (ERS)

o Increase knowledge about the importance of regional innovation and collaboration for 

sustainable rural economic growth. (ERS, NASS)

Build new partnerships with underserved and non-traditional populations.

Actionable items

o Partner with national level community based organizations (CBO) to solicit 

promotion assistance and data collection assistance to 2012 Census of Agriculture 

mail list for underserved populations. (NASS)

o Identify potential new partnerships and pursue those to enhance enumeration of 

underserved and non-traditional populations in the 2012 Census of Agriculture.

(NASS)

o Develop new data collection strategies to improve quality of data for underserved 

populations by the use of the CBO/NASS Partnership Manual. (NASS)

o Assess 2007 Census of Agriculture outreach efforts to promote partnerships among 

colleges, universities, local and regional CBOs, field based organizations, and 

extension to identify and address the needs of underserved populations. (NASS, 

NIFA)

Provide statistical data and analysis to promote efficient domestic agricultural production 

and marketing systems.

Actionable items

o Conduct Census of Agriculture content test to finalize new questionnaire content.

(NASS)

o Provide statistically sound information for expanding economic opportunities by 

conducting the 2012 Census of Agriculture. (NASS)

o Develop and implement a rotational agricultural renewable energy survey and data 

series. (NASS)

o Provide commodity and food market information that increases the efficiency and 

effectiveness of private domestic agricultural production and marketing systems.

(NASS)

o Ensure that the Census of Agriculture enumerates U.S. farms with a high level of 

coverage. (NASS) 

IV. Implementation – Measuring Success

What is our measure of success? What identifies the success of this Action Plan? And what 

identifies success of science in the USDA? Success will depend upon the answers to four

questions: 

(1) Is the Action Plan implemented? 

(2) What is the realistic timeline for each step? These will vary with the state of the science.

(3) Do the implementation steps accomplish their expected or desired results? 

(4) Do those results, in turn, accomplish the overall goal of the Action Plan, which is to 

improve the quality, effectiveness, and visibility of USDA science?
34

Having defined grand challenges and goals for USDA science, responsible governance requires 

that some form of accountability be established to determine if those challenges are being met, 

how well they’re being met, and if the resources being used to achieve these goals are being used 

in the most efficient manner possible. That also begs the difficult question of how to attribute 

improvements in some grand goal to the science that was designed to support it. For example, an 

overarching goal of public policy is to enhance economic welfare of rural Americans. How do 

we link USDA research on, for example, plant breeding to improved economic welfare? Linking 

science endeavors to desired outcomes is a strategic process, and attempting to make those 

connections raises some useful considerations about the nature of the science undertaken. 

Addressing the challenges defined in the REE Action Plan is critical to developing and 

understanding the science that will be necessary to promote agricultural sustainability. 

Accountability is necessary to determine if we’re moving science in the right direction—are we 

making the world better with our science? The challenges on the road ahead are grand and 

complex and will therefore be hard to observe whether they are being met. 

The first step toward success has already occurred—goal teams that cut across the four agencies 

of the REE mission area developed the strategies and actions contained herein. As 

implementation of the Action Plan progresses, it will be important to assess whether or not the 

expected changes have resulted in desired outcomes. For example, does the increased 

collaboration lead to better integration of functions and disciplines; does the communication plan 

lead to more informed stakeholders; do the professional staff development activities result in a 

workforce that is better informed and more able to communicate USDA’s unique role; and do the 

recruiting and mentoring activities lead to a larger and more diverse pool of qualified applicants? 

Outcome measures might include some of the same factors that are provided earlier in this 

document as evidence of the need for these action steps, for example, allocation of investments 

or characteristics of the workforce. Rather than propose specific measures here, however, each 

goal team or agency component that is charged with implementing an action step will develop a 

clear expected outcome and associated measures of success. 

A project with larger benefits for USDA science will also help further REE accountability 

efforts. USDA has successfully implemented the first Federal instance of VIVO, an 

interdisciplinary national network that enables collaboration and discovery among scientists 

across all disciplines within USDA and without. Building on this success, and as a next groundbreaking step to that large data collection and standardization effort, USDA has joined the STAR 

METRICs project, a multi-agency venture led by NIH, NSF and the Office of Science and 

Technology Policy (OSTP). The STAR METRICS project is a partnership between science 

agencies and research institutions to document the outcomes of science investments to the public.

V. Closing Comments

The goals, strategies, and actions presented in this plan emphasize the cultivation of sciencebased evidence for decisionmakers and end users alike. Impact-driven agricultural science is 

critical to the future of agricultural and related industries in the U.S. The success of the action 

plan and the transformation of USDA into a high-profile research organization is dependent upon 
35

efficient use of research and educational resources and on continued support and resources from 

Congress. 

This document is a work in progress that will evolve over time without straying far from the 

general themes. It will be evaluated periodically and adapted as necessary to reflect progress, 

shifts in priority, and adjustments in funding. Regular, frequent progress checks will be made 

within the mission area, and on an agency level, for specific actions. It is through ongoing 

stakeholder dialogue that we will maintain a culture of relevance. It is through our outcomes that 

the R&D return on investment can be measured.

It is expected that individual agencies within the mission area will refer to this document when 

drafting and refining their specific agency action plans. They will use it as a touchstone to guide 

them as they do their part to help America win in the global marketplace and strengthen our 

economy. By aligning with various components of the REE plan, specific agencies can and will 

demonstrate that their programs support the stated REE goals, which in turn support the broader 

Departmental goals set forth by the Secretary of Agriculture. Accomplishing the goals set forth 

in this document requires acceptance and support from the REE mission area, the agencies, and 

their employees. In part, accountability for progress made toward achieving these goals will 

occur via insertion of key items into senior-level REE mission area and agency performance 

plans. Establishing written, agreed upon, and reasonable goals in performance plans roots the 

goals and strategies within each agency and reaffirms their importance. Further, individual 

agency budget performance measures will be derived in part from the REE Action Plan.
36

Glossary of Acronyms

AFRI Agriculture and Food Research Initiative

AITC Agriculture in the Classroom

APHIS Animal and Plant Health Inspection Service

ARS Agricultural Research Service

BLM United States Department of the Interior Bureau of Land Management

BOR United States Department of the Interior Bureau of Reclamation

BW&ER Benchmark Watersheds and Experimental Ranges

CDC Centers for Disease Control

CEAP Conservation Effects Assessment Project

CGIAR Consultative Group on International Agricultural Research

DHS United States Department of Homeland Security

DOD United States Department of Defense

DOI United States Department of the Interior

DOS United States Department of State

EPA United States Environmental Protection Agency

ERS Economic Research Service

FDA United States Food and Drug Administration

FIA Forest Inventory and Analysis

FEMA Federal Emergency Management Agency

FSA Farm Service Agency

GHG Greenhouse gas

HHS United States Department of Health and Human Services

HSI Hispanic-Serving Institution

LTAR Long-Term Agro-Ecosystem Research

NAREEE National Agricultural Research, Extension, Education, and Economics 

NAL National Agricultural Library

NASA United States National Aeronautics and Space Administration

NASS National Agricultural Statistics Service

NIDIS National Integrated Drought Information System

NIFA National Institute of Food and Agriculture
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NIH National Institutes of Health

NOAA United States National Oceanic and Atmospheric Administration

NPS United States National Park Service

NRC National Research Council

NRCS Natural Resources Conservation Service

NRE Natural Resources and Environment Mission Area

NRI National Resources Inventory

NSF National Science Foundation

OAO United States Department of Agriculture Office of Advocacy and Outreach

OCS Office of the Chief Scientist

OEM United States Department of Agriculture Office of Environmental Markets

OSTP White House Office of Science and Technology Policy

OTR United States Department of Agriculture Office of Tribal Relations

RBRC United States Department of Agriculture Regional Biomass Research Centers

RD Rural Development Mission Area

REE Research, Education, and Economics Mission Area

STEM Science, Technology, Engineering, and Math

STEWARDS Sustaining the Earth’s Watersheds Agricultural Research Data System

USACE United States Army Corps of Engineers

USDA United States Department of Agriculture

USGS United States Geological Survey