United States Department of Agriculture

FY 2019 

BUDGET SUMMARY
i

CONTENTS

PREFACE ........................................................................................................................................ iii

OVERVIEW ....................................................................................................................................... 1 

HIGHLIGHTS BY GOAL .................................................................................................................... 3 

MISSION AREA/AGENCY DETAILS: 

FARM PRODUCTION AND CONSERVATION: 

Farm Service Agency ............................................................................................................. 14 

Risk Management Agency ..................................................................................................... 21 

Natural Resources Conservation Service ............................................................................... 23 

Farm Production and Conservation Business Center ............................................................. 27 

TRADE AND FOREIGN AGRICULTURAL AFFAIRS: 

Foreign Agricultural Service .................................................................................................. 28 

RURAL DEVELOPMENT: 

Rural Utilities Service ............................................................................................................ 35 

Rural Housing Service ........................................................................................................... 37 

Rural Business-Cooperative Service ...................................................................................... 39 

Rural Development Salaries and Expenses ............................................................................ 40 

FOOD, NUTRITION, AND CONSUMER SERVICES: 

Food and Nutrition Service .................................................................................................... 42 

FOOD SAFETY: 

Food Safety and Inspection Service ....................................................................................... 48 

NATURAL RESOURCES AND ENVIRONMENT: 

Forest Service ......................................................................................................................... 50 

MARKETING AND REGULATORY PROGRAMS: 

Animal and Plant Health Inspection Service ......................................................................... 55 

Agricultural Marketing Service .............................................................................................. 59 

RESEARCH, EDUCATION, AND ECONOMICS: 

Agricultural Research Service ................................................................................................ 64 

National Institute of Food and Agriculture ............................................................................ 67 

Economic Research Service ................................................................................................... 69 

National Agricultural Statistics Service ................................................................................. 69 

DEPARTMENTAL STAFF OFFICES ..................................................................................................... 70 

OFFICE OF CIVIL RIGHTS ................................................................................................................. 73 

OFFICE OF INSPECTOR GENERAL ..................................................................................................... 74 
ii 2019 USDA BUDGETSUMMARY

APPENDIX: 

Staff Years by Agency ................................................................................................................ 75 

Budget Authority by Agency ...................................................................................................... 76 

Program Level by Agency .......................................................................................................... 78 

Outlays by Agency ...................................................................................................................... 80 

Discretionary Outlays by Agency ............................................................................................... 81 

User Fee Proposals ...................................................................................................................... 82 

Budget-Related Proposals ........................................................................................................... 83 
PREFACE iii

PREFACE

This publication summarizes the fiscal year (FY) 2019 Budget for the U.S. Department of 

Agriculture (USDA). Throughout this publication any reference to the “Budget” is with regard to 

the 2019 Budget, unless otherwise noted. All references to years refer to fiscal year, except where 

specifically noted. The budgetary tables throughout this document show actual amounts for 2017, 

estimates based upon the annualized continuing resolution for 2018, and the President’s Budget 

for 2019. 

The performance tables throughout this document, unless otherwise noted, show target levels for 

2018 and 2019 and a baseline amount for target comparison. Performance goals reflect 

performance levels at ongoing funding levels and do not include the effect of supplemental 

appropriations. Performance target levels are estimates and subject to change.

Throughout this publication, the “2014 Farm Bill” is used to refer to the Agricultural Act of 2014. 

Most programs funded by the 2014 Farm Bill are not funded after 2018. Amounts shown in 2019 

for Farm Bill programs reflect those confirmed in the baseline.

Pursuant to the Balanced Budget and Emergency Deficit Control Act of 1985, sequestration is 

included in the numbers for mandatory programs in all years. The sequestration rate for 2017 is 

6.9 percent; 2018 is 6.6 percent; and 2019 is 6.2 percent.

DOCUMENT ORGANIZATION

The Budget Summary is organized into three sections: 

• Overview – provides an overview of USDA’s funding. 

• Budget Highlights – describes key budget proposals and changes in budget authority and 

outlays. 

• Mission Area and Agency Details – summarizes agency funding, programs, and performance 

goals.

BUDGET AND PERFORMANCE PLAN TERMS: 

Budget Authority (BA): Authority to commit funds of the Federal Treasury. Congress provides 

this authority through annual appropriations acts and substantive legislation, which authorizes 

direct spending. The President's budget requests the Congress to appropriate or otherwise provide 

an amount of budget authority sufficient to carry out recommended government programs.

Obligations: Commitments of Government funds that are legally binding. In order for USDA to 

make a valid obligation, it must have a sufficient amount of BA to cover the obligation. 

Outlays: Cash disbursements from the Federal Treasury to satisfy a valid obligation. 

Program Level (PL): The gross value of all financial assistance USDA provides to the public. 

This assistance may be in the form of grants, guaranteed or direct loans, cost-sharing, professional 

services, such as research or technical assistance activities, or in-kind benefits, such as 

commodities.

Performance Goal: The target level of performance at a specified time or period expressed as a 

tangible, measurable outcome against which actual achievement can be compared, including a goal 

expressed as a quantitative standard, value, or rate. A performance goal comprises a performance 

measure with targets and timeframes.
iv 2019 USDA BUDGETSUMMARY

Performance Measures: Indicators, statistics, or metrics used to gauge program performance. 

Program performance measures include outcome, output, and efficiency measures. 

DATA DISPLAY – ZERO TREATMENT

Amounts in text and tables throughout this document are calculated with the greatest level of 

precision (decimal places) available and rounded for display purposes. Therefore, amounts in 

tables and charts may not add to displayed totals due to rounding. Also due to rounding, amounts 

in this document may appear to be marginally different than those shown in the President’s Budget, 

which is developed in millions.

In tables throughout this document, amounts equal to zero (0) are displayed as dashes (-). Amounts 

less than 0.5 and greater than zero are rounded and shown as a zero (0). This display treatment is 

used to prevent the masking of non-zero amounts that do not round up to one (1).

DATA DISPLAY – SCALE

The Budget is most often depicted or described using budget authority as the scale of measurement. 

However, there are some cases when other measures or scales are used, so the reader should be 

aware of the context. Also, note that the budget authority tables contained in this document reflect 

operating levels.

OTHER PUBLICATIONS

The 2017 Annual Performance Report and 2018 Annual Performance Plan, which provides 

performance information concerning USDA achievements in 2017 and plans for 2018, can be 

found at: http://www.obpa.usda.gov.

The 2019 Cuts, Consolidations, and Savings Volume of the President’s Budget identifies the 

lower-priority program activities per the GPRA Modernization Act. The public can access the 

volume at: http://www.whitehouse.gov/omb/budget. 

CONTACT INFORMATION

Questions may be directed to the Office of Budget and Program Analysis via e-mail at 

bca@obpa.usda.gov or telephone at (202) 720-6176. 
OVERVIEW 1 

OVERVIEW

MISSION STATEMENT

USDA provides leadership on food, agriculture, natural resources, rural development, nutrition, 

and related issues based on sound public policy, scientific evidence, and efficient management. 

2019 FUNDING OVERVIEW

Under current law, the 2019 request for discretionary budget authority to fund programs and 

operating expenses is about $18 billion, approximately $5.8 billion less than 2018. This includes 

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

Rural Development, Forest Service, food safety, research, and conservation activities. 

Funding for mandatory programs is estimated to be $122 billion, $1.7 billion greater than 2018. 

Figure OV-1. USDA Budget Authority

Under current law, USDA’s total outlays for 2019 are estimated at $140 billion. Outlays for 

mandatory programs are $117 billion, 84 percent of total outlays. Mandatory programs provide 

services required by law, but are not funded through annual appropriations acts. Mandatory outlays 

include crop insurance, nutrition assistance programs, farm commodity and trade programs, and a 

number of conservation programs. The remaining $23 billion, or 16 percent, of outlays are for 

discretionary programs such as; WIC, food safety, rural development loans and grants, research 

and education, soil and water conservation technical assistance, animal and plant health, 

management of national forests, wildland fire, other Forest Service activities, and domestic and 

international marketing assistance.

160

140 $137

$144

$24

$139

$18

120 $25

100

80

60 $111 $120 $122

40

20

0

2017 2018 2019

Mandatory Discretionary

$

Billions
2 2019 USDABUDGET SUMMARY

Figure OV-2. USDA Outlays

160

$146

140 $140

$128 $25 $23

120 $24

100

80

60 $121

$104 $117

40

20

0

2017 2018 2019

Mandatory Discretionary

$

Billions

Forestry 

4%

Nutrition Assistance 

71%

Farm, Conservation, 

and Commodity 

Programs

22%

All Other* 

3%

Figure OV-3. 2019 Outlays (All Other includes Rural Development, Research, Food Safety, 

Marketing and Regulatory, and Departmental Management.)
HIGHLIGHTS BY GOAL 3

HIGHLIGHTS BY GOAL

The Budget supports achievement of USDA’s seven strategic goals.

STRATEGIC GOAL 1: ENSURE USDA PROGRAMS ARE DELIVERED EFFICIENTLY, EFFECTIVELY, 

WITH INTEGRITY AND A FOCUS ON CUSTOMER SERVICE

The Department will modernize and consolidate Information Technology (IT) infrastructure and 

services, as well as strengthen management and oversight of procurement, property, and finances 

to ensure our resources are deployed as effectively and efficiently as possible. We will create a 

safe and modern space within which employees can work and feel empowered, and will promote 

accountability and professional development. USDA will leverage the strength and talent of our 

employees, and reduce regulatory and administrative burdens to allow agencies to focus on our 

customers. Improved customer service and employee engagement will create a more effective and 

accessible USDA for all of our stakeholders. 

In 2017, USDA initiated the realignment of a number of offices to improve customer service and 

maximize efficiency. The actions involved innovation, consolidation, and the rearrangement of 

certain offices into more logical organizational reporting structures. The reorganization recognizes 

the importance of trade to U.S. agriculture through the creation of the Under Secretary for Trade 

and Foreign Agricultural Affairs (TFAA). USDA established the Farm Production and 

Conservation (FPAC) Mission Area to provide a simplified one-stop shop for USDA’s primary 

customers, the men and women farming, ranching, and foresting across America. USDA created 

the Assistant to the Secretary for Rural Development (RD) and situated it to report directly to the 

Secretary. Furthermore, the Department is focused on improving the efficiency and effectiveness 

of its management activities across the Department and is centralizing business functions in each 

Mission Area to better align them.

As part of the reorganization, USDA implemented a strategic vision focused on modernizing 

Information Technology and support services; as well as streamlining processes. Through these 

efforts, IT leadership in each USDA Mission Area will be positioned to more directly focus on 

their systems, data collection and analysis, and risk management. Through these mergers, the 

Mission Areas will not only increase operational efficiencies, but also maximize collaboration 

between agencies that serve similar customers. USDA will also better utilize its internal data by 

developing administrative dashboards and tracking systems to better understand where efficiencies 

can be gained in the technology, human resources, fleet, procurement, and real property spaces.

USDA has partnered with the White House Office of American Innovation to modernize its 

systems with four key strategies: strengthen strategic IT governance; consolidate end-user services 

and data centers; enable a strategic approach to data management, and introduce data-driven 

capabilities; and improving the USDA customer experience. In 2019, USDA will continue our 

efforts to be the most effective, efficient, and customer focused Department in the entire Federal 

Government. 

Select Goal-Centric Programs and Initiatives 

IT modernization

The Budget includes an additional $15 million in IT modernization projects to support customer 

engagement. USDA will enhance the internal and external customer experience by modernizing 

and improving the security of IT infrastructure and services by: consolidating end-user services 

and data centers from 39 USDA data centers to a single data center and a back-up; reducing the 

number of Departmental legacy networks from 17 to five; and improving the USDA customer 
4 2019 USDABUDGET SUMMARY

experience by creating online service portals that are easy-to-use, include additional self-service 

capabilities, and integrate data for common customers. One of these initiatives includes the 

establishment of a customer portal for the FPAC Mission Area that will allow farmers and ranchers 

to more easily access USDA services. This improved access will enable these customers to make 

better business decisions with the support of USDA and will reduce the amount of duplication and 

time spent interacting with the Department.

Cyber Security

The Budget includes an additional $8 million to enhance cyber security capabilities. Funding is 

provided to enhance the Department’s cyber security profile through the acquisition and 

implementation of relevant tools and services. USDA is currently implementing the Continuous 

Diagnostics Mitigation (CDM) program as required by the Department of Homeland Security. 

Implementation thus far has already increased protection of the network, and these additional 

investments will further enhance the safety and security of government data and the network. 

Farm Production and Conservation Business Center

The Budget provides funding to consolidate administrative functions, including finance, budget, 

information technology, human resources, and other enterprise-wide activities within the newly 

formed FPAC mission area a under newly established business center. The center will strengthen 

customer service and improve efficiencies across the FPAC mission area and is a major step 

towards not only increasing operational efficiencies, but also maximizing collaboration between 

agencies that serve agricultural producers.

STRATEGIC GOAL 2: MAXIMIZE THE ABILITY OF AMERICAN AGRICULTURAL PRODUCERS TO

PROSPER BY FEEDING AND CLOTHING THE WORLD

A strong and prosperous agricultural sector is essential to the well-being of the U.S. economy. 

America’s farmers and ranchers ensure a reliable food supply, support job growth, and promote 

economic development. To maintain a competitive agricultural sector, USDA will support farmers 

and ranchers to start and maintain profitable businesses as well as offer financial support to 

producers affected by natural disasters. Furthermore, USDA’s research agencies will continue 

efforts to increase the efficiency and product quality of plants and animals, and provide integrated 

management options that increase the efficiency of farming practices. Lastly, USDA will also 

provide tools to producers so that they are well positioned to secure a share of a growing market 

for agricultural products.

In 2017, USDA established the Under Secretary for Farm Production and Conservation (FPAC). 

Under the newly-organized FPAC mission area, the Farm Service Agency, the Risk Management 

Agency, and the Natural Resources Conservation Service were realigned to report to the renamed 

Under Secretary to improve customer service and maximize efficiency. Through this organization, 

USDA supported an effective safety net to the more than two million agricultural producers who 

provide food and fiber to over 300 million Americans, and millions more around the globe. USDA 

also provided extensive assistance for a variety of disasters throughout the country, including 

hurricanes, drought, wildfires, floods, freezes, tornados, and other storms.

Select Goal-Centric Programs and Initiatives 

Commodity Programs

The Budget provides $5.1 billion for commodity program payments to maintain an effective farm 

safety net. Commodity programs are critical components of the farm safety net, serving to provide 

risk management and financial tools to farmers and ranchers. Approximately 1.8 million farms are
HIGHLIGHTS BY GOAL 5

enrolled in the Agriculture Risk Coverage (ARC) and Price Loss Coverage (PLC) programs, which 

are helping cushion the financial strain felt by producers due to continued low prices for many 

commodities.

Federal Crop Insurance Program

The Budget provides $8.7 billion for the Federal Crop Insurance Program, enough to provide crop 

insurance coverage for more than $100 billion in crop value. Crop insurance provides farmers and 

ranchers a means to effectively manage their risk through difficult periods, helping to maintain 

America's safe and affordable food supply. 

Farm Loans 

The Budget includes funding to fully support the estimated $7.6 billion demand for farm loans. 

Direct and guaranteed farm loans support about 46,425 producers, 80 percent of whom are 

beginning farmers and ranchers, veterans, and socially disadvantaged producers.

Research, Education and Economics 

The Budget includes $2.6 billion to support research to advance the competiveness of U.S. 

agriculture and promote food security. This includes $1 billion to support core research projects 

of the Agricultural Research Service (ARS) covering a wide range of critical problems facing 

American agriculture, ranging from animal and crop protection and production, new product 

development, environmental stewardship, food safety, and human nutrition. It also includes $1.3 

billion to support extramural agricultural research, education, and extension activities of the 

National Institute of Food and Agriculture (NIFA), including $375 million for competitive grants 

through the Agriculture and Food Research Initiative (AFRI). For the Economic Research Service, 

the Budget proposes a total of $45 million to focus on core data analysis related to agricultural 

production. For the National Agricultural Statistics Service, the Budget includes $165 million, 

including $45 million to release the 2017 Census of Agriculture.

Next Generation Producer Education 

The Budget includes $50 million to educate America’s next generation of farmers. Funding will 

be used to support agriculture science literacy programs and other community based efforts, such 

as 4-H Clubs. Developing a future agriculture workforce is not only critical to the Nation’s food 

security, but also vital in promoting rural prosperity and improving quality of life. 

Agricultural Pest and Disease Programs 

The Budget includes $1 billion to protect agriculture from pests and diseases, address sanitary 

(animal) and phytosanitary (plant) trade concerns, and enforce animal care legislation. This 

includes programs that support the U.S. field crop, cotton, forestry, livestock, poultry, and 

specialty crop industries. The Budget maintains the Department’s ability to transfer funds to 

address emergencies. Cooperators that receive direct benefits from animal health, plant health, and 

wildlife service activities are expected to increase their contributions to sustain program 

operations. 

National Bio and Agro-Defense Facility

The Budget supports the transfer of operational responsibility for the National Bio andAgro-Defense 

Facility (NBAF) from the Department of Homeland Security (DHS) to USDA and provides $42 million 

for operations costs in 2019. Once construction is complete, the ARS will operate NBAF and use the 

facility to study diseases that threaten the animal agricultural industry and public health while the 

Animal and Plant Health Inspection Service (APHIS) performs diagnostics related to foreign diseases 

of animals. Funding is also requested within ARS and APHIS to begin transitioning highlypathogenic
6 2019 USDABUDGET SUMMARY

animal disease work from the obsolete facilities at the Plum Island Animal Disease Center to NBAF. 

Funding is also requested within ARS and APHIS to begin transitioning highly pathogenic animal 

disease work from the obsolete facilities at the Plum Island Animal Disease Center to NBAF.

National Bioengineered Food Disclosure Standard

The Budget provides $1 million to establish the National Bioengineered Food Disclosure Standard. 

Public Law 114-216 requires USDA to put in place a national mandatory system for disclosing the 

presence of bioengineered material. The requirements of the disclosure are being developed 

through rulemaking.

Fraudulent Organic Imports

The Budget includes an increase of $3 million to protect against fraudulent organic imports. 

Funding will be used to implement information technology enhancements at ports of entry. These 

improvements will aid in the identification of imports that have been fraudulently labeled as 

organic. 

STRATEGIC GOAL 3: PROMOTE AMERICAN AGRICULTURAL PRODUCTS AND EXPORTS

Expanding international marketing opportunities for U.S. farmers and exporters is a critical source 

of business and income growth across rural America. It is essential for USDA to continue efforts 

to promote American agricultural exports, develop international standards, remove trade barriers 

by monitoring and enforcing existing trade agreements, and negotiate new trade agreements that 

benefit the U.S. agricultural economy. 

In 2015, American farmers and ranchers relied upon exports for 19 percent of farm income. In 

fiscal year 2016, agricultural exports totaled about $130 billion, making the United States the 

world’s top agricultural exporter. USDA scored significant trade victories during 2017, including 

the reentry of U.S. beef to China after a 13-year hiatus; Chinese market access for U.S. rice for the 

first time ever; easing of regulations on U.S. citrus into the European Union; gaining approval for 

new biotech varieties in China; resumption of U.S. distillers dried grains into Vietnam and China; 

reentry of U.S. chipping potatoes into Japan; and lifting of South Korea’s ban on imports of U.S. 

poultry. In 2019, USDA will enhance its efforts to break down trade barriers and increase 

agricultural exports. 

As part of the reorganization in 2017, the U.S. Codex Alimentarius Office was transferred from 

the Food Safety and Inspection Service (FSIS) to the Under Secretary TFAA. The U.S. Codex 

Office is an interagency partnership that engages stakeholders in the development of international 

governmental and non-governmental food standards. The focus of the Codex Office aligns better 

with the mission of TFAA. The Under Secretary for Food Safety will continue to be the U.S. 

Codex Office Policy Committee Chair and the Office will continue to advocate science based 

codex policies.

Select Goal-Centric Programs and Initiatives 

International Markets for U.S. Agricultural Exports 

The Budget includes $433 million to reduce trade barriers that disadvantage U.S. agricultural 

exports and to open new markets for U.S. farm products. An increase of $10 million is proposed 

to strengthen monitoring and enforcement of existing trade agreements, support trade-related 

technical assistance, and respond to urgent situations when trade is disrupted. The value of 

agricultural exports resulting from participation in foreign food and agricultural trade shows is 

expected to reach $1.75 billion. 
HIGHLIGHTS BY GOAL 7

Sanitary and Phytosanitary Barriers to Exports

The Budget includes $22 million for the APHIS to address sanitary and phytosanitary barriers that 

restrict trade. Producers rely on fair and open access to markets. This funding will be used to 

strengthen USDA’s ability to help U.S. agricultural producers export their products to other 

countries by resolving concerns over animal and plant health issues. The Budget would enable 

USDA to preserve trade valued at $4.5 billion through resolution of foreign market access issues 

related to U.S. export detainment, restrictive sanitary and phytosanitary issues, technical barriers 

to trade, and other impediments to trade.

STRATEGIC GOAL 4: FACILITATE RURAL PROSPERITY AND ECONOMIC DEVELOPMENT

When rural Americans share the same level of infrastructure services as the country’s urban areas, 

rural communities can make even greater economic contributions with healthy families and 

prosperous businesses. Economic and social science research informs decision-makers regarding 

current trends in rural America and gaps in existing markets, which USDA then uses to provide 

benefits to rural American businesses and citizens. USDA leverages funds, stimulates privatepublic partnerships, and engages in collaboration to build rural infrastructure including: 

broadband, community facilities, healthcare services and facilities, and safe and affordable 

housing to help underserved communities become thriving communities.

American prosperity and well-being are intrinsically tied to rural America’s ability to thrive in the 

new global economy; to build and attract an educated workforce and expand its population base; 

and to use its diverse and abundant natural resources to provide food, fiber, forest products, energy, 

and recreation. Through the Task Force on Agriculture and Rural Prosperity, the Department has 

identified actions to improve the quality of life and expand economic development in rural 

communities. Many of these actions are supported through investments made in USDA lending 

activities to rural utilities and communities and to strengthen investments in housing programs. 

Realizing the opportunities for prosperity in rural America requires action on multiple fronts, 

including promoting economic development, advancing innovation and technology, ensuring a 

well-trained and productive workforce, and improving the quality of life in rural communities, all 

of which require access to capital and infrastructure. In turn, the rural workforce depends on a high 

quality of life in rural areas, including the assurance that critical services are of sufficient quality, 

either to train productive workers from the local population or to attract employees and their 

families from other places. USDA will continue to facilitate and support access to world-class 

resources and tools that are needed to build robust, sustainable rural communities for generations 

to come.

Select Goal-Centric Programs and Initiatives 

Rural Electric Infrastructure

The Budget includes $5.5 billion in loans for rural electric improvements, benefiting over 5 million 

rural residents annually by expanding the use of smart grid technologies and other security and 

resiliency improvements. The ability to dynamically manage energy use is critical to ensuring 

network reliability, enhancing system-wide efficiency, and keeping electric rates affordable for 

rural residents and businesses.

Rural E-Connectivity

The Budget provides $690 million for infrastructure loans that will be used to provide or enhance 

broadband services to communities with population under 5,000. In addition, the Budget leverages

$30 million in broadband grants with $23 million in loans to create a private-public partnership to 
8 2019 USDABUDGET SUMMARY

expand high speed e-connectivity to rural Americans. It also includes $24 million for distance 

learning and telemedicine loans. Electronic connectivity is fundamental for economic 

development, innovation, advancements in technology, workforce readiness, and an improved 

quality of life. As of 2014, 39 percent of the rural population lacked access to broadband at speeds 

necessary for advanced telecommunications and data transfer capability. The e-connectivity gap 

not only prevents rural Americans from participating in the global marketplace, but also limits 

urban Americans from accessing innovations and products from rural America.

Water and Waste Disposal Infrastructure

The Budget includes funding to support $1.2 billion in direct loans to improve and expand the 

water and waste disposal facilities in rural America. Safe drinking water and sanitary waste 

disposal systems are vital to achieving a high quality of life and are essential to many rural 

residents. For 2019, USDA will provide improved services to nearly 1.5 million rural residents. 

Community Infrastructure

The Budget includes $3.5 billion to support the Community Facilities Direct Loan Program for 

investment in critical community infrastructure, such as healthcare, safety, and educational 

facilities. Improved access to mental and behavioral care are vital to address the nationwide opioid 

crisis and other substance abuse in rural communities. Planned investments will allow over 5 

million rural residents to receive access to improved healthcare and safety facilities, including 

hospitals and mental health clinics.

Rural Housing Infrastructure

The Budget includes funding to support $24 billion in funding to enable approximately 164,000 

families to enjoy homeownership through the Single Family Housing Guaranteed Loan Program. 

The Budget also provides $250 million for multi-family guaranteed loans to support the 

development of more than 8,000 units for very low, low, and moderate-income rural residents. 

USDA works with other public and private partners to better leverage its investment in housing; 

in 2017, approximately $4 was invested by partners for every USDA dollar invested. To help very 

low- and low-income households afford their rental payments, the Budget includes $1.3 billion to 

maintain rental assistance payments, enough to fund about 274,000 contracts. 

STRATEGIC GOAL 5: STRENGTHEN THE STEWARDSHIP OF PRIVATE LANDS THROUGH

TECHNOLOGY AND RESEARCH

The world population is expected reach 9.7 billion by 2050. Feeding this population will require 

adoption of new science and technologies and the implementation of science-based conservation 

plans to sustainably increase agricultural production. To ensure U.S. private working lands and 

public agricultural landscapes are conserved the Department will provide technical and financial 

assistance using the latest technology and research available. New and improved practices result 

from fundamental and applied research that facilitates our understanding of the complex 

interactions between human systems and the environment, and transferring the resulting 

knowledge into the hands of producers and land managers through information, tools, and decision 

support. 

In 2017, USDA and its partners helped more than 680,000 land managers invest in their operations. 

This work resulted in conservation plans for 27 million acres of working lands – an area the size 

of Tennessee. For 2019, USDA will continue to provide significant resources to support 

conservation practices and measures that will improve stewardship of our natural resources.
HIGHLIGHTS BY GOAL 9

Select Goal-Centric Programs and Initiatives 

Farm Bill Conservation Programs 

The Budget includes $2.2 billion for the Conservation Reserve Program (CRP) to protect close to 

24 million acres of environmentally sensitive cropland and grassland. In addition, $1.6 billion is 

included for the Environmental Quality Incentives Program (EQIP) and $250 million for the 

Agricultural Conservation Easement Program.

STRATEGIC GOAL 6: ENSURE PRODUCTIVE AND SUSTAINABLE USE OF OUR NATIONAL FOREST

SYSTEM LANDS

The Nation’s forests and grasslands are a fundamental part of the American landscape, and are a 

legacy that the Forest Service holds in trust for present and future generations. Forests provide 

clean air and water, forest and rangeland products, mineral and energy resources, jobs, quality 

habitat for fish and wildlife, recreational opportunities, and memorable experiences. The Forest 

Service plays a critical role in making America’s forests and grasslands resilient to threats and 

disturbances while mitigating wildfire risk. The Department also manages the National forests and 

grasslands to ensure that they are healthy and sustainable, while also allowing rural communities 

to access and benefit from economic opportunities that our Nation’s forests offer. This work is 

complemented by USDA’s research in forestry, ecology, and economics to ensure world-class 

science guides effective policies and management practices.

Select Goal-Centric Programs and Initiatives 

Reducing the Risk of Wildfires 

The Budget includes $2.5 billion to mitigate wildfire risk. The Budget supports the Forest 

Service’s activities that protect life, property and natural resources on National Forest System 

(NFS) lands, other federal lands, and an additional 20 million acres of non-federal lands under 

agreements. The Budget supports treatment of hazardous fuels within highest priority areas. The 

Budget also fully funds the 10-year average for Suppression and enables Preparedness to fully 

cover firefighter base 8 salary hours. The Budget also proposes to amend the Balanced Budget and 

Emergency Deficit Control Act to establish a separate annual cap adjustment for wildfire 

suppression operations, similar to how unanticipated funding needs for other natural disasters are 

addressed. The Budget provides $228 million to support an aviation fleet that meets wildland fire 

response requirements, including up to 18 airtankers and 108 helicopters.

Forest Health

The Budget includes an investment of $1.3 billion to improve the health and resilience of National 

forests, ensuring that our National forests and grasslands continue to provide clean air and water, 

forest and rangeland products, mineral and energy resources, quality habitat for fish and wildlife, 

recreational opportunities, and jobs. With $390 million for Hazardous Fuels Reduction and

$341 million for Forest Products, among other programs, the agency will accomplish a timber 

output of 3.7 billion board feet, 2.1 million acres of restoration, and improve 14 watersheds. The 

Budget also proposes $85.9 million to address the greatest emerging threats to forest health on and 

off Forest Service land. 

Recreational Opportunities in National Forests 

The Budget includes $240 million to increase recreational opportunities in National forests. USDA 

supports the economic health of rural communities through improved access to National forests 

by supporting outdoor recreational opportunities. The Budget will prioritize permitting for 

outfitters and guides, maintaining and growing strong collaborations with partners and volunteer 
10 2019 USDABUDGET SUMMARY

groups, and working to address the recreational needs of today's public, who want year-round 

activities on NFS lands.

Law Enforcement on National Forest System Lands 

The Budget includes $129 million, an increase of $3 million, to enable marijuana eradication and 

grow site clean-up and reclamation. 

STRATEGIC GOAL 7: PROVIDE ALL AMERICANS ACCESS TO A SAFE, NUTRITIOUS, AND SECURE 

FOOD SUPPLY

A plentiful supply of safe and nutritious food is essential to the healthy development of every child 

in America and to the well-being and productivity of every family. USDA works to help prevent 

foodborne illness and protect public health as well as aid access to safe, nutritious, and balanced 

meals and promote a healthy diet.

USDA’s nutrition assistance programs help ensure food security by providing accessto a nutritious 

diet with emphasis on those facing particular need due to unemployment, recession, disaster, age, 

or disability. These programs also work to promote well-being by providing assistance to help 

ensure access to a diet consistent with the Dietary Guidelines for Americans.

USDA supports and protects the Nation’s agricultural system and the consumers it serves by 

safeguarding the quality and wholesomeness of meat, poultry, and egg products. USDA has 

collaborated extensively with other Federal partners to safeguard the food supply, prevent 

foodborne illnesses and improve consumers’ knowledge about the food they eat. USDA will 

continue to focus on preventing product contamination and foodborne illness and modernizing 

systems and approaches to safeguard the food Americans serve their families every single day.

Select Goal-Centric Programs and Initiatives 

Safeguards the Nation's Food Supply 

The Budget includes more than $1 billion to fully fund the costs necessary to support over 8,100 

personnel located at over 6,400 processing and slaughter establishments for meat, poultry, and egg 

products in the U.S. These personnel act as frontline inspectors and investigators and provide 

surveillance to protect the Nation's food supply and further the mission of FSIS.

Nutrition Assistance

The Budget includes funding to support estimated participation levels under current law, including 

$73.2 billion for the Supplemental Nutrition Assistance Program (SNAP), $23.1 billion for Child 

Nutrition Programs, and $5.8 billion for the Special Supplemental Nutrition Program for Women, 

Infants, and Children (WIC). In 2019, estimated participation levels are: 40.8 million per month 

for SNAP, 30.7 million per day for the National School Lunch Program, and 6.9 million per month 

for WIC.

2020 Dietary Guidelines for Americans (DGA) 

The Budget includes $12 million to develop the 2020 DGA for which USDA is the lead agency. 

Starting with the 2020 DGA, the scope will be expanded to include guidance for pregnant women, 

toddlers, and infants. 
HIGHLIGHTS BY GOAL 11

PROGRAM REFORMS

The 2019 President’s Budget includes legislative proposals to reform programs to better target 

Federal dollars, while contributing to deficit reduction efforts. The Budget also reduces and 

eliminates programs that do not support USDA’s core mission or are a lower priority.

Reform the Food Safety Net While Promoting Work 

The Budget includes a bold new approach to nutrition assistance that combines the use of 

traditional SNAP Electronic Benefit Transfer (EBT) cards with a USDA Foods Box that contains 

100 percent American grown products. In addition, the Budget focuses on innovative 

administrative reforms on outcome-based employment strategies. This expands on previous 

proposals to strengthen expectations for work among able-bodied adults that will lead to selfsufficiency, reserves benefits for those most in need, promotes efficiency in State operations, and 

improves program integrity. Specifically, the USDA Foods Box proposal within SNAP has the 

potential to reduce waste, fraud, and abuse by limiting opportunities for benefits to be misused or 

trafficked. Combined, these reforms will save American taxpayers over $200 billion over ten 

years, while maintaining a commitment to ensuring all Americans have access to food and being 

good stewards of taxpayer dollars. 

Prioritizing Waste, Fraud, and Abuse in SNAP

The Budget proposes a legislative change requiring mandatory State use of the National Accuracy 

Clearinghouse (NAC) in administering SNAP. The NAC will eliminate dual SNAP participation 

nationwide. The Budget also proposes the elimination of State performance bonuses. USDA 

conducted a nationwide review of the accuracy of State reported error data and found widespread 

underreporting of payment errors, which suggests that bonuses provided States with incentives to 

underreport. 

Target Commodity Programs and Crop Insurance 

The Budget proposes legislation to optimize and improve crop insurance and commodity programs 

in a way that maintains a strong safety net while also achieving savings, reducing subsidies to 

higher income farmers, and reducing payments made to private sector insurance companies. The 

Budget includes a set of proposals, including those that would reduce the average premium subsidy 

for crop insurance from 62 percent to 48 percent and limit commodity and crop insurance subsidies 

to those producers that have an Adjusted Gross Income of $500,000 or less. Additionally, the 

Budget proposes reductions to subsidies provided to participating insurance companies by capping 

underwriting gains at 12 percent, which will ensure that the companies receive a more reasonable 

rate of return given the risks associated with their participation in the crop insurance program. The 

Budget proposes to eliminate an unnecessary and separate payment limit for peanut producers and 

limit eligibility for commodity subsidies to one manager per farm. In total, these reforms are 

expected to save more than $33 billion over 10 years.

Streamline Conservation Programs 

The Budget proposes legislation to streamline Federal conservation efforts to focus on programs 

that protect environmentally sensitive land and increase conservation practice implementation. 

Funding for the EQIP would be increased $60 million per year, while the Conservation 

Stewardship Program and the Regional Conservation and Partnership Program would be 

terminated. Proposals are also included to target enrollment and incentive payments for CRP. In 

total, these reforms are expected to save more than $14 billion over 10 years. 
12 2019 USDABUDGET SUMMARY

Comprehensive Solution to Wildfire Funding

The Budget supports a legislative solution to address the way the Forest Service funds wildland 

firefighting so that the agency is not routinely borrowing money from prevention programs to 

combat ongoing wildfires. For example, in 2017, Forest Service wildfire suppression spending 

reached a record $2.4 billion, necessitating transfers of $527 million from other programs. 

Historically, these transfers have been repaid in subsequent appropriations; however, fire 

borrowing impedes the missions of land management agencies to reduce the risk of catastrophic 

fire and restore and maintain healthy functioning ecosystems. To resolve concerns about the 

sufficiency of land management and funding wildfire suppression, the Budget responsibly funds 

100 percent of the rolling 10-year average cost for wildfire suppression in the Departments of 

Agriculture and the Interior within discretionary budget caps. Similar to how unanticipated funding 

needs for other natural disasters are addressed, the Budget proposes a separate fund that will 

include an annual cap adjustment appropriation for wildfire suppression to ensure that adequate 

resources are available to fight wildland fires, protect communities, and safeguard human life 

during the most severe wildland fire seasons.

Modernize Inspection Activities

The Budget includes proposed legislation to charge a user fee to cover certain inspection, 

regulatory, and oversight activities. The proposals range from inspection of meat, poultry, and egg 

products to enforcement of animal welfare requirements. The Budget also proposes user fees for 

grain standardization and a Packers and Stockyards license fee to cover program costs. Fee 

proposals to help offset the cost of biotechnology and veterinary biologic regulation are also 

included in the Budget. The Budget proposes a user fee to recover the cost of providing 

Agricultural Quarantine and Inspection (AQI) services within the U.S. and its Territories, which 

is consistent with how AQI activities are funded for passengers and cargo originating outside of 

the U.S. Legislation will be proposed to use assessments to cover the Marketing Order and 

Agreements Federal administrative costs. In total, these reforms are expected to save about $7.1 

billion over 10 years.

Elimination of Lower Priority Programs 

The Budget includes proposals to eliminate several programs to reduce spending, including the 

Rural Business-Cooperative Service programs, the Single Family Housing Direct Loan program, 

water and waste grants, the McGovern-Dole International Food for Education Program, Food for 

Progress, school equipment grants, among others. The Budget includes a proposal to eliminate the 

Commodity Supplemental Food Program and transfer program participants to SNAP. Also 

included is a proposal to transfer the responsibility for Siluriformes inspection back to the Food 

and Drug Administration.
FARM PRODUCTION AND CONSERVATION 13

FARM PRODUCTION AND CONSERVATION

MISSION

As part of the USDA reorganization in May 2017, the Farm Production and Conservation (FPAC) 

mission area was formed to focus on domestic agricultural issues. Locating the Farm Service 

Agency (FSA), the Risk Management Agency (RMA), and the Natural Resources Conservation 

Service (NRCS) under one mission area provides a simplified one-stop shop for USDA’s primary 

customers, the men and women farming, ranching, and managing forests across America. FSA, 

RMA and NRCS implement programs designed to mitigate the significant risks of farming through 

crop insurance, conservation programs and technical assistance, and commodity, lending, and 

disaster programs.

When American farmers are financially healthy, they not only support themselves and their 

families, but also their employees, local equipment dealers, farm service suppliers and the rural 

communities where they live and do business. In 2015, U.S. farms produced more than $425 billion 

in gross output and purchased more than $225 billion in inputs. That has a big impact on rural 

America and also the national economy. In 2015, 21 million full- and part-time jobs, or 11 percent 

of total U.S. employment, were related to the agricultural and food sectors.

In 2017, FSA provided over $7.9 billion in Agriculture Risk Coverage (ARC) and Price Loss 

Coverage (PLC) financial assistance to producers for the 2015 crop year. ARC and PLC are an 

important part of the farm safety net, providing assistance during crop revenue or commodity 

downturns. 

FSA continues to provide tools for America’s farmers to be good stewards of the land. The 

Conservation Reserve Program (CRP) has protected and conserved environmentally sensitive land 

since 1985. In 2017, USDA enrolled 390,000 acres under general signup, and approved 1.2 million 

acres under continuous signups and 511,000 acres in the CRP grasslands program. 

FSA farm loan programs provide an important safety net for producers, by providing a source of 

credit when they are temporarily unable to obtain credit from commercial sources. The majority 

of FSA’s direct and guaranteed farm ownership and operating loans are targeted to underserved 

populations such as beginning farmers and socially disadvantaged producers, who generally have

had a more difficult time obtaining credit to maintain and expand their operations. In 2017, FSA 

made available $7.7 billion through direct and guaranteed loans. 

Crop insurance is designed to allow farmers and ranchers to effectively manage their risk through 

difficult periods, helping to maintain America's food supply and the sustainability of small, limited 

resource, socially disadvantaged and other underserved farmers. In crop year 2017, the Federal 

crop insurance program provided protection for more than $100 billion in agricultural production. 

NRCS works in partnership with private landowners, communities, local governments, and other 

stakeholders to promote the sustainable use and safeguard the productivity of the Nation’s private 

working lands. The agency provides conservation planning, technical assistance, and financial 

assistance to farmers, ranchers and foresters to help them conserve, enhance and protect natural 

resources. In addition, NRCS works with these partners to leverage resources and innovative ideas 

to make the landscape and critical infrastructure more resilient. In 2017, conservationists assisted 

in developing conservation plans on 27 million acres of private land. 
14 2019 USDABUDGET SUMMARY

In October 2017, the FPAC Business Center (FBC) was formed to consolidate enterprise-wide 

back-office functions within the newly formed FPAC mission area. FBC will be responsible for 

financial management, budgeting, human resources, information technology, acquisitions/ 

procurement, customer experience, internal controls, risk management, strategic and annual 

planning, and other mission-wide activities in support of the customers and employees of FSA, 

NRCS, and RMA. 

FARM SERVICE AGENCY

FSA supports the delivery of farm loans, commodity, conservation, disaster assistance, and related 

programs. FSA utilizes the Commodity Credit Corporation (CCC), which funds most of the 

commodity and export programs, and some of the USDA conservation programs. FSA delivers its 

programs through more than 2,100 local and regional Service Centers, 50 State Offices, and an 

area office in Puerto Rico.

Table FPAC-1. FSA Budget Authority (millions of dollars)

Discretionary:

FSA Salaries and Expenses:

Item 2017

Actual

2018 

Estimate

2019 

Budget

Salaries and Expenses (Direct Appropriation) a....................... $1,206 $1,180 $920

Transfer from Program Accounts ............................................ 310 308 267

Total, Salaries and Expenses................................................. 1,516 1,487 1,187

Agricultural Credit Insurance Fund Program Account:

Loan Subsidy ........................................................................... 90 89 77

Loan Program Expenses .......................................................... 10 10 10

Total, ACIF Program Account .............................................. 100 99 87

State Mediation Grants............................................................... 4 4 3

Grassroots Source Water Protection Program ............................ 7 7 -

Total, Ongoing Discretionary Programs .................................. 1,626 1,597 1,278

Other Funding:

Reforestation Pilot Program .................................................... 1 1 -

Geographically Disadvantaged Farmers and Ranchers ........... 2 2 -

Emergency Conservation Program .......................................... 132 29 -

ARC Pilot ................................................................................ 5 5 -

Total, Other Funding............................................................. 139 37 -

Total, Discretionary Programs...................................................... 1,765 1,634 1,278

Mandatory:

Dairy Indemnity Program........................................................... 1 1 1

Total, FSA..................................................................................... 1,766 1,635 1,279

a Reflects transfers to the Agricultural Marketing Service in 2018 and FPAC Business Center in 2019.

Salaries and Expenses

The Budget includes $1.3 billion to support Federal and non-Federal staffing. FSA organizational 

changes, part of the USDA reorganization, are reflected in the Budget, including the transfer of 

staff and funding to the FBC and to the Agricultural Marketing Service (AMS). The FBC will 

consolidate enterprise-wide back-office functions for FSA, NRCS, and RMA. Approximately 832 

staff years will be transferred from FSA to the newly formed FBC and funded through $115 million
FARM PRODUCTION AND CONSERVATION 15

in direct appropriations and a $16 million transfer from the Agricultural Credit Insurance Fund 

(ACIF). Additionally, the international commodity procurement and U.S. Warehouse Act 

functions were transferred to AMS, along with 139 staff years and $18.2 million to administer 

these functions. 

Savings will be achieved through a number of streamlining efforts that will reduce the cost of 

program delivery, while maintaining customer service. These efforts include Headquarters and 

Field organizational realignment and strategic reductions in staff years throughout FSA. 

Additionally, reductions in operating expenses and information technology investments will be 

made. Finally, increased funding will be provided to expand customer self-service for 

conservation, farm loans and farm programs through a common web portal. This portal, jointly 

managed by FSA, RMA, and NRCS, would serve as a launch point for farmers and ranchers to 

apply for programs and access customer information across the mission area. 

Table FPAC-2. FSA Staff Years

Item 2017

Actual

2018 

Estimate

2019 

Budget

Federal .......................................................................................... 4,118 3,972 2,802

Non-Federal:

Permanent Full-Time.................................................................. 7,220 7,188 6,228

Temporary .................................................................................. 181 200 200

Total, Non-Federal................................................................... 7,401 7,388 6,428

Total, FSA Staff Years.................................................................. 11,519 11,360 9,230 

Farm Loan and Grant Programs 

Table FPAC-3. ACIF Program Level (PL) and Budget Authority (BA) (millions of dollars)

Item 2017 PL BA 2018 PL BA 2019 PL BA

Discretionary:

Farm Operating Loans: 

Guaranteed Unsubsidized ........................... $1,960 $21 $1,877 $21 $1,600 $17

Direct .......................................................... 1,530 65 1,602 65 1,500 59

Total, Operating Loans............................. 3,490 86 3,479 86 3,100 76

Farm Ownership Loans:

Guaranteed Unsubsidized ........................... 2,750 - 2,750 - 2,750 -

Direct .......................................................... 1,500 - 1,500 - 1,500 -

Total, Ownership Loans ........................... 4,250 - 4,250 - 4,250 -

Emergency Loans .......................................... 23 1 25 1 38 1

Indian Land Acquisition Loans ..................... 20 - 20 - 20 -

Highly Fractionated Indian Land Loans........ 10 3 11 3 - -

Boll Weevil Eradication Loans ..................... 60 - 60 - 60 -

Guaranteed Conservation Loans ................... 150 - 150 - 150 -

Total, ACIF ...................................................... 8,003 90 7,996 89 7,618 77 

The farm loan programs serve as an important safety net for America’s farmers by providing a 

source of credit if they are temporarily unable to obtain credit from commercial sources. In order 

to meet the anticipated demand for farm credit, the Budget provides $7.6 billion for farm loans. 
16 2019 USDABUDGET SUMMARY

The Budget supports an estimated 46,425 farmers and ranchers by financing operating expenses 

and providing opportunities to acquire a farm or keep an existing one. The availability of farm 

operating loans provides farmers with short-term credit to finance the costs of continuing or 

improving their farming operations, such as purchasing seed, fertilizer, livestock, feed, equipment, 

and other supplies. For farm operating loans, the Budget provides $1.5 billion for direct loans and

$1.6 billion for guaranteed loans. The requested loan levels will serve an estimated 32,561 farmers, 

26,785 of whom will receive direct loans and 5,776 will receive guaranteed loans. For farm 

ownership loans, the Budget includes funding to support $1.5 billion in direct loans and $2.75 

billion for guaranteed loans. These loan levels will provide 13,864 people with the opportunity to 

either acquire their own farm or keep an existing one; 8,241 borrowers will receive direct loans 

and 5,623 will receive guaranteed loans. 

The Budget includes $38 million loan level for emergency (EM) loans. Demand for EM loans is 

difficult to predict; funding is requested to ensure that support is available in the event of a natural 

disaster. The Budget requests a loan level of $20 million for Indian Land Acquisition loans, the 

same as 2018. No funding is requested for the Highly Fractionated Indian Loan program. The loan 

level funding for boll weevil eradication remains at $60 million, the same as 2018. 

Funding for State mediation grants is proposed at $3.2 million. These grants are made to States to 

support certified programs that provide alternative dispute resolution. 

USDA strives to continually increase service to our customers. A key performance measure 

reflecting customer service in the direct farm loan program is shown in table FPC-4. 

Table FPC-4. Key Performance Measure (KPM) – Average Number of Daysto process Direct Loans

Key Performance Measure Baseline

2018 

Target

2019 

Target

Average number of days to process direct loans 31 31 30 

Commodity Credit Corporation 

Table FPAC-5. CCC Budget Authority (millions of dollars)

Item 2017

Actual

2018 

Estimate

2019 

Budget

Mandatory:

Commodity Credit Corporation Fund ........................................ $7,062 $8,450 $11,349

Tobacco Trust Fund ................................................................... 3 - -

Total, Current Law........................................................................ 7,065 8,450 11,349

Proposed Legislation a ................................................................ - - -1,031

Total, CCC .................................................................................... 7,065 8,450 10,318

a The Budget includes proposals for changes to certain programs above.

Commodity Programs 

The commodity programs provide risk management and financial tools to farmers and ranchers. 

These programs, including the Agriculture Risk Coverage (ARC), Price Loss Coverage (PLC), 

and Margin Protection Program for Dairy (MPP), provide protection against adverse market 

fluctuations; hence, outlays for many of these programs vary significantly from year to year as 

market conditions change. Total CCC net outlays (Table FPAC-6) in 2019 are approximately $2.6 

billion lower than 2018 under current law, primarily due to lower outlays for ARC and PLC. The
FARM PRODUCTION AND CONSERVATION 17

estimated outlays for ARC and PLC for 2019 are based on changes in the projected marketing year 

average commodity prices.

Table FPAC-6. CCC Net Outlays (millions of dollars)

Item 2017

Actual

2018 

Estimate

2019 

Budget

Commodity Programs:

Direct Payments ......................................................................... $4 - -

Loan Deficiency Payments......................................................... 52 $7 $22

Agriculture Risk Coverage/Price Loss Coverage....................... 7,945 7,556 4,965

Dairy Margin Protection Program .............................................. 0 31 57

Other........................................................................................... 124 172 49

Subtotal, Commodity Payments .............................................. 8,126 7,766 5,094

Disaster....................................................................................... 401 464 487

Noninsured Crop Disaster Assistance Program ......................... 157 150 150

Biomass Crop Assistance Program (BCAP) .............................. 5 - -

All Other..................................................................................... -41 475 489

Total, CCC Commodity Programs........................................... 8,648 8,855 6,220

Conservation Programs:

Conservation Reserve Program ............................................... 1,882 2,128 2,220

Emergency Forestry Conservation Reserve Program .............. 5 2 2

Total, Conservation Programs............................................... 1,886 2,130 2,222

Export Programs:

Quality Samples Program ........................................................ 1 3 3

Market Access Program (MAP) .............................................. 200 200 200

Foreign Market Development (Cooperator) Program a............ 33 35 -

Technical Assistance for Specialty Crops Program a............... 9 9 -

Total, Export Programs ......................................................... 243 246 203

Total CCC Fund............................................................................ 10,778 11,231 8,644

Other CCC Activities:

CCC Export Loans (including Liquidating Account) ................ 23 25 12

Pima Agriculture Cotton Trust Fund a........................................ 15 16 -

Agricultural Wool Apparel Manufacturers Trust Fund.............. 27 28 30

Farm Storage Facility Loans ...................................................... 11 11 -

Total, Other CCC Programs.......................................................... 76 80 42

Total, Current Law........................................................................ 10,854 11,311 8,686

Proposed Legislation b ................................................................ - - -1,031

Total, CCC .................................................................................... 10,854 11,311 7,655

a Not confirmed in the baseline for 2019.

b The Budget includes proposals for changes to certain programs above.

ARC and PLC provides assistance only when commodity revenue or price downturns occur. Under 

ARC, producers were given the choice to elect ARC–County (ARC-CO) or ARC-Individual 

(ARC-IC). ARC-CO offers revenue protection on a county basis. ARC-IC offers revenue 

protection on an individual farm basis. Farm operators were required to make a one-time election 

of ARC and/or PLC for each of their covered commodities through the 2018 crop year. Producers 

were able to elect PLC or ARC-CO on a commodity-by-commodity basis, but ARC-IC had to be 
18 2019 USDABUDGET SUMMARY

elected on a farm basis. Payments under PLC occur if the U.S. average market price for the crop 

is less than the reference price set in statute, therefore offering price protection. Payments under 

ARC-CO occur when actual crop revenue is below the ARC revenue guarantee for a crop year. 

Under ARC-IC, payments are outlaid when the actual individual crop revenues, summed across 

all covered commodities on the farm, are less than ARC individual guarantees summed across 

those covered commodities on the farm. ARC and PLC payments are outlaid October 1 of the 

subsequent crop year or when the Marketing Year Average for the covered commodity is published 

by USDA, whichever is later. The ARC and PLC outlays made in 2017 were for the 2015 crop 

year, and similarly the outlays to be made in 2018 and 2019 are for crop years 2016 and 2017, 

respectively.

The Margin Protection Program for Dairy (MPP) provides protection to dairy producers when the 

difference between the all milk price, as reported by the National Agricultural Statistics Service, 

and the average feed cost, or margin, falls below a certain dollar amount selected by the producer. 

Participating dairy operations establish their production history upon initial registration, and all 

producers in the participating dairy operation must provide adequate proof of the dairy operation’s 

quantity of milk marketed commercially. Catastrophic coverage of $4 margin coverage level at 90 

percent of the established production history requires no premium payment, but the dairy operation 

must pay a $100 administrative fee. For increased protection, dairy operations may annually select 

a percentage of coverage from 25 to 90 percent of the established production history in five percent 

increments and a coverage level threshold from $4.50 to $8 in 50 cent increments, for an additional 

premium payment. Dairy operations may only select one coverage level percentage and coverage 

level threshold for the applicable calendar year.

Table FPAC-7. CCC Fund Commodity Payments Net Outlays (millions of dollars)

Item 2017 Actual 

2018 

Estimate

2019 

Budget

Commodity: a

Feed Grains ................................................................................ $4,552 $3,416 $2,259

Wheat ........................................................................................ 1,106 2,286 1,508

Rice ............................................................................................ 542 1,059 358

Upland and Extra Long Staple Cotton ..................................... -1 111 53

Soybeans and Products............................................................... 1,125 191 159

Peanuts ...................................................................................... 545 604 626

Minor Oilseeds .......................................................................... 94 28 43

Honey ........................................................................................ -4 - -

Vegetable Oil Products .............................................................. - 69 77

Other Commodities b .................................................................. 167 2 10

Total, Commodity Payments ........................................................ 8,126 7,766 5,094 

a Negative amounts indicate receipts are greater than outlays. b Table revised on February 16, 2018.

Conservation Programs 

Most of the conservation programs administered by FSA and NRCS (see NRCS section for further 

information) are funded through the CCC. These programs help farmers adopt and maintain 

conservation systems that protect water and air quality, reduce soil erosion, protect and enhance 

wildlife habitat and wetlands, conserve water, and sequester carbon. 
FARM PRODUCTION AND CONSERVATION 19

Table FPAC-8. CCC FSA Conservation Programs Budget Authority (millions of dollars)

Item 2017

Actual

2018 

Estimate

2019 

Budget

Conservation Reserve Program..................................................... $1,882 $2,128 $2,220

Emergency Forestry Conservation Reserve Program ................... 5 2 2

Total, Current Law........................................................................ 1,886 2,130 2,222

Proposed Legislation a ................................................................ - - -136

Total, Conservation Programs ...................................................... 1,886 2,130 2,086

a The Budget includes proposals for changes to certain programs above.

Conservation Reserve Program (CRP) 

The purpose of CRP isto assist farm owners and operatorsin conserving and improving soil, water, 

air, and wildlife resources by converting highly erodible and other environmentally sensitive 

acreage normally devoted to the production of agricultural commodities to a long-term resourceconserving cover. CRP participants enroll in contracts for periods from 10 to 15 years in exchange 

for annual rental payments and cost-share and technical assistance for installing approved 

conservation practices. Amounts for CRP include financial and technical assistance. In addition to 

highly erodible cropland, CRP also can enroll cropland and marginal pastureland in areas adjacent 

to lakes and streams that are converted to buffers, and cropland that can serve as restored or 

constructed wetlands, cropland contributing to water quality problems, and cropland converted to 

valuable wildlife habitat.

The 2014 Farm Bill reauthorized CRP through September 30, 2018, and replaced the previous 32 

million acre enrollment cap with caps declining to 24 million acres in 2017 and 2018. Also 

included is authority for up to $10 million in incentive payments through 2018 to encourage tree 

thinning and $33 million for Transition Incentive Payments (TIP) through 2018. TIP provides 

retiring land owners and operators with an incentive to return land to production on an expiring 

CRP contract in a way that preserves established conservation practices. It also provides funding 

for beginning and socially disadvantaged farmers and ranchers to purchase their own land or rent 

land. The 2014 Farm Bill also allows enrollment of up to 2 million of grassland acres in CRP 

(contained within the total CRP enrollment cap). CRP enrolls land through general signups and 

continuous signups, including the Conservation Reserve Enhancement Program (CREP). CREP 

agreements are Federal/State partnerships designed to address specific environmental objectives. 

Under general signup provisions, producers compete nationally during specified enrollment 

periods for acceptance based on an environmental benefits index. Under continuous signup 

provisions, producers enroll specified high-environmental value lands such as wetlands, riparian 

buffers, and various types of habitat at any time during the year without competition. 

In 2017, 390,000 acres were enrolled in CRP under general signup, 400,000 acres were enrolled 

under continuous signup, and 89,000 acres were enrolled in CRP grasslands program. Total CRP 

enrollment at the end of 2017 was 23.l4 million acres, with 2.5 million acres expiring at the end of 

2017 and 1.5 million expiring at the end of 2018. 

Among multiple environmental benefits, a key performance measure for CRP is the number of 

restored wetland acres. Restored wetlands and upland buffers increase prime wildlife habitat and 

water storage capacity, and lead to a net increase in wetland acres on agricultural land. Wetlands 

filter nutrients, recharge groundwater supplies, and sequester carbon. 
FARM PRODUCTION AND CONSERVATION 21

Table FPC-9. KPM - Wetland Restoration (millions of acres)

Key Performance Measure 2019 

Target

CRP restored wetland acreage 1.9 1.9 1.9 

Riparian and grass buffers improve water quality and provide vital habitat for wildlife. By reducing 

water runoff and sedimentation, riparian and grass buffers protects groundwater and helps improve 

the condition of lakes, rivers, ponds and streams. The current 24 million acre cap set in 2014 Farm 

Bill may limit future increases in riparian and grass buffers acreage.

Table FPC-10. KPM – CRP Riparian and Grass Buffers (millions of acres)

Key Performance Measure Baseline

2018 

Target

2019 

Target

Cumulative CRP acres enrolled in riparian and grass buffers. 1.6 1.6 1.6 

Agricultural Disaster Assistance

The Livestock Indemnity Program (LIP), Livestock Forage Disaster Program (LFP), Emergency 

Assistance for Livestock, Honey Bees, and Farm-Raised Fish Program (ELAP), and the Tree 

Assistance Program (TAP) were authorized by the 2008 Farm Bill, through September 30, 2011, 

under the USDA Supplemental Disaster Assistance Program. The 2014 Farm Bill reauthorized 

these programs under CCC and made payments retroactive for losses from October 1, 2011. Under 

the terms of the 2014 Farm Bill, producers are no longer required to purchase crop insurance or 

Non-Insured Crop Disaster Assistance Program (NAP) coverage to be eligible for these programs.

Table FPAC-11. Supplemental Agricultural Disaster Assistance Outlays (millions of dollars)

Item 2017

Actual

2018 

Estimate

2019 

Budget

Baseline

2018 

Target

Livestock Indemnity Payments..................................................... $25 $31 $31

Livestock Forage Disaster Program.............................................. 351 394 416

ELAP ............................................................................................ 18 20 20

Tree Assistance Program .............................................................. 7 20 20

Total, Current Law........................................................................ 401 464 487

Proposed Legislation a ................................................................ - - -416

Total, Supplemental Agricultural Disaster Assistance.................. 401 464 71

a The Budget includes proposals for changes to certain programs above.

LIP provides benefits to producers for livestock deaths in excess of normal mortality caused by 

adverse weather or attacks by animals reintroduced into the wild by the Federal Government. LFP 

provides compensation to livestock producers who have suffered grazing losses due to drought on 

land that is native or improved pastureland with permanent vegetative cover or is planted 

specifically for grazing. LFP also provides compensation to producers who have suffered grazing 

losses due to fire on rangeland managed by a federal agency.

ELAP provides emergency assistance to eligible producers of livestock, honeybees and farmraised fish for losses due to disease (including cattle tick fever), adverse weather, or other 

conditions, such as blizzards and wildfires, not covered by LFP and LIP. The 2014 Farm Bill 
20 2019 USDABUDGET SUMMARY

capped funding for ELAP at $20 million for 2012 and each subsequent fiscal year, to remain 

available until expended. 

TAP provides financial assistance to qualifying orchardists and nursery tree growers to replant or 

rehabilitate eligible trees, bushes, and vines damaged by natural disasters. 

Proposed Legislation 

The Budget includes several legislative proposals to better target commodity and conservation 

assistance, and to eliminate all funding for two CCC programs to fund other Administration 

priorities. The legislative proposals: (1) limit commodity and conservation payments to 

participants that have an Adjusted Gross Income (AGI) of $500,000 or less; (2) eliminate 

commodity certificates; (3) eliminate the separate $125,000 payment limit for peanuts; (4) make 

Marketing Assistance Loans (MALs) forfeitures subject to the $125,000 payment limit; (5) limit 

all farms to one manager that can qualify as actively engaged; (6) target enrollment in CRP to 

environmentally sensitive areas, limit the enrollment of whole farm fields and eliminate all funding 

for signing incentive payment (SIPs) and practice incentive payments ( PIPs), with the exception 

of the Conservation Reserve Enhancement Program; (7) limit CRP annual rental payments to 80 

percent of the average county rental rates as determined by National Agriculture Statistics Service 

(NASS); (8) eliminate all funding for the Economic Adjustment Assistance Program (EAAP) for 

Upland Cotton Users; and (9) eliminate all funding for the Livestock Forage Disaster Program 

(LFP). See Appendix for details.

RISK MANAGEMENT AGENCY

Table FPAC-12. RMA Budget Authority (millions of dollars)

Item 2017

Actual

2018 

Estimate

2019 

Budget

Discretionary:

RMA Salaries and Expenses Appropriations ............................. $75 $75 $38

Offsetting Collections a............................................................... - - 20

Mandatory Transfers:

Federal Crop Insurance Act (FCIA) Initiatives ....................... 9 9 9

Total, Discretionary Programs ...................................................... 84 84 67

Mandatory:

Delivery and Other Administrative Expenses b .......................... 1,489 1,355 1,355

Federal Crop Insurance Act (FCIA) Initiatives .......................... 61 72 64

Gross Indemnities c ..................................................................... 4,596 10,128 9,783

Underwriting Gains d .................................................................. 2,594 1,101 1,121

Farm Bill: Agricultural Management Assistance ....................... 3 4 -

Other FCIC Activities ................................................................ 20 20 -

Subtotal, Crop Insurance Program Level................................. 8,763 12,680 12,323

Less: Producer Premium and Administration Fees .................... -3,677 -3,786 -3,639

Total, Mandatory Programs e......................................................... 5,086 8,894 8,684

Total, RMA ................................................................................... 5,170 8,978 8,751 

a The first $20 million of the amounts collected pursuant to 7 U.S.C. 1508(b)(5) and 7 U.S.C. 1508(c)(10) shall be 

credited to the discretionary account. b Reimbursements to private companies.

c The amount of premium subsidy paid by the Federal government is not reflected in the table above. The Budget 

for the Federal Crop Insurance Program assumes a crop year loss ratio (gross indemnities/total premium) of 1.0
22 2019 USDABUDGET SUMMARY

for 2019. However, the fiscal year loss ratio could be higher or lower than 1.0 due to differences in the timing of 

certain cash flows (see discussion below on estimated indemnities). d Payments to private insurance companies. The 2019 underwriting gains reflect a projected 1.0 loss ratio for the 

2018 crop year. e The Budget includes proposals for the crop insurance program. Savings from these proposals do not begin until 

2020. No budget authority impact is estimated for 2019.

Discretionary Funding – Salaries and Expenses

Discretionary funds for the Federal crop insurance program cover most of Federal salaries and 

related expenses to manage the program. The Budget includes $38 million in discretionary 

appropriations for these costs. In addition, RMA will seek to utilize up to $20 million in crop 

insurance administrative fees, currently paid by participating producers, which will be spent 

directly from the Federal Crop Insurance Fund for RMA Salaries and Expenses. Further, the 

Federal Crop Insurance Act authorizes the transfer of up to $9 million each fiscal year from 

mandatory funding to the RMA Salaries and Expenses (S&E) account for program compliance 

and integrity reviews. 

Organizational changes, part of the USDA reorganization announced in 2017, are reflected in the 

Budget, including the transfer of staff and funding to the FPAC Business Center (FBC). FBC will 

consolidate enterprise-wide back-office functions of the FSA, NRCS and RMA. Approximately 

82 staff years will be transferred from RMA to the newly formed FBC and funded through $17 

million in direct appropriations. FBC will also receive staff and funding from FSA, RMA, and 

NRCS. See the FBC section for further details.

Mandatory Funding

The Federal crop insurance program provides a safety net that protects producers from a wide 

range of risks caused by natural disasters, as well as the risk of price fluctuations. Currently, about 

80 percent of risk protection is provided by “revenue insurance,” which protects against losses due 

to low yields, low prices, or a combination of low yields and prices.

Federal crop insurance is delivered to producers through private insurance companies that share in 

the risk of loss and opportunity for gain. The companies are reimbursed for their delivery expenses 

and receive underwriting gains in years of favorable loss experience. The costs associated with the 

Federal crop insurance programs include premium subsidies, indemnity payments (in excess of 

producer paid premiums), underwriting gains paid to private companies, reimbursementsto private 

companies for delivery expenses and other authorized expenditures. 

A key performance measure for the Federal crop insurance program is the normalized value of risk 

protection provided by Federal Crop Insurance Corporation (FCIC) sponsored insurance – shown 

in table FPC-13 on a crop year basis. The value of FCIC risk protection is the actual dollar 

insurance liability for a given crop year. However, this value is strongly influenced by commodity 

price swings or trends. The normalized value of risk protection uses a five-year baseline to smooth 

variations caused by these trends. The baseline model uses the most recent crop insurance data, 

and other USDA market conditions data, to develop normalized value projections for major crops. 

For the 2017 crop year, the Federal crop insurance program provided about $106.0 billion in risk 

protection or about $74.6 billion in (normalized) risk protection. The 2018 and 2019 crop year 

targets reflect projections from the baseline model as described above. 

Actual indemnities for 2017 reflect crop year 2016 losses that were paid out in 2017, plus the 

portion of crop year 2017 losses paid out in 2017. As of January 1, 2018, the loss ratio for crop 
FARM PRODUCTION AND CONSERVATION 23

year 2017 is expected to be in the 0.60 to 0.70 range. Estimated losses for crop years 2018 and 

2019 reflect the statutory target loss ratio of 1.0. 

Table FPC-13. KPM - Risk Protection Through FCIC-Sponsored Insurance (billions of dollars)

Key Performance Measure Baseline

2018 

Target

2019 

Target

Annual normalized value of risk protection 74.6 64.0 64.3 

In 2017, the total cost for the Federal crop insurance programs was $5.2 billion. Of this amount, 

about $919 million was for net indemnities to producers (gross indemnities minus producer paid 

premiums/fees). Another $1.5 billion was paid to the private insurance companies for delivery 

expenses and $2.6 billion for underwriting gains, and $64 million was used for Federal Crop 

Insurance Act initiatives, such as Risk Management Education Partnership Agreements. 

Proposed Legislation 

The Budget proposes legislative changes to the Federal crop insurance program. Legislative 

proposals include targeting crop insurance subsidies to producers that have an Adjusted Gross 

Income (AGI) of $500,000 or less; a reduction of 15 percentage points for the premium subsidy 

for Harvest Price coverage, a 10 percentage point reduction for all other insurance policies other 

than catastrophic level of coverage (CAT) policies; and a cap on underwriting gains for Approved 

Insurance Providers (AIPs) of 12 percent return on retainedpremium.

NATURAL RESOURCES CONSERVATION SERVICE

Table FPAC-14. NRCS Budget Authority (millions of dollars)

Item 2017

Actual

2018 

Estimate

2019 

Budget

Discretionary:

Private Lands Conservation Operations a ................................... $864 $858 $669

Watershed Rehabilitation Program ............................................ 12 12 -

Water Bank Program .................................................................. 4 4 -

Small Watersheds P.L. 83-466 .................................................. 150 149 -

Emergency Watershed Protection Program................................ 103 - -

Total, Discretionary Programs ...................................................... 1,133 1,023 669

Mandatory:

Farm Bill Programs:

Environmental Quality Incentives Program ............................ 1,551 1,524 1,614

Agricultural Conservation Easement Program ........................ 466 234 250

Regional Conservation Partnership Program........................... 93 93 100

Conservation Security Program ............................................... 5 - -

Conservation Stewardship Program......................................... 1,149 1,334 1,645

Agricultural Management Assistance b .................................... 3 3 -

Small Watershed Rehabilitation Program................................ 8 6 3

Conservation Reserve Program Tech. Assist........................... 112 89 95

Total, Mandatory Programs c......................................................... 3,387 3,284 3,707

Total, Current Law........................................................................ 4,520 4,307 4,376

Proposed Legislation d ................................................................ - - -40

Total, NRCS.................................................................................. 4,520 4,307 4,336 
24 2019 USDABUDGET SUMMARY

a The Budget shows total staff resources necessary to implement the private lands conservation programs in the 

retitled Private Lands Conservation Operations (PLCO) account. PLCO includes the total for discretionary 

technical assistance and associated science and technology programs provided through the previously-titled 

Conservation Operations account in addition to the total technical assistance necessary to implement Farm Bill 

programs. For comparability, both discretionary and mandatory funds are shown for 2017 through 2019. b NRCS is authorized to receive 50 percent of total AMA funding and the rest is provided to RMA and FSA.

c The amounts for Total Mandatory Programs include the Technical Assistance funding levels listed on FPAC-15 

table. d The Budget includes proposals for changes to certain programs above.

Private Lands Conservation Operations (PLCO) 

The Budget proposes to retitle the Conservation Operations account to Private Lands Conservation 

Operations. PLCO would consolidate the discretionary and mandatory technical assistance (TA) 

funding necessary for the agency to support its core mission of delivering conservation to America’s 

private working lands. The total proposed funding for PLCO for 2019 is about $1.5 billion. This 

includes $669 million of discretionary funding, of which $576 million is for the Conservation 

Technical Assistance Program, and $92 million is for Soil Survey, Snow Survey, and Plant Materials 

Centers. A total of $850 million in mandatory TA is estimated to be needed to support Farm Bill 

conservation program implementation. 

Table FPAC-15. PLCO Budget Authority (millions of dollars)

Item 2017

Actual

2018

Estimate

2019

Budget

Discretionary:

Conservation Technical Assistance............................................ $759 $754 $576

Soil Surveys................................................................................ 81 80 74

Snow Surveys ............................................................................. 9 9 9

Plant Materials............................................................................ 9 9 9

Watershed Projects ..................................................................... 6 6

Total, Discretionary Programs ...................................................... 864 858 669

Mandatory:

Farm Bill Programs (Technical Assistance): a

Environmental Quality Incentives Program ............................ 420 413 382

Agricultural Conservation Easement Program ........................ 97 79 71

Regional Conservation Partnership Program........................... 39 37 19

Conservation Security Program ............................................... 1 - -

Conservation Stewardship Program......................................... 234 272 290

Agricultural Management Assistance b .................................... 1 1 -

Conservation Reserve Program Tech. Assist........................... 112 89 89

Total, Mandatory Programs .......................................................... 904 890 850

Total, PLCO.................................................................................. 1,768 1,748 1,519 

a The Budget proposes to show total staff resources necessary to implement the private lands conservation program 

in the retitled Private Lands Conservation Operations (PLCO) account. PLCO includes the total for discretionary 

technical assistance and associated science and technology programs provided through the previously-titled 

Conservation Operations account in addition to the total technical assistance necessary to implement Farm Bill 

programs. b NRCS is authorized to receive 50 percent of total AMA funding and the rest is provided to RMA and FSA.

NRCS organizational changes, part of the USDA reorganization announced in 2017, are reflected 

in the 2019 Budget, including the transfer ofstaff and funding to the FPAC Business Center (FBC).
FARM PRODUCTION AND CONSERVATION 25

FBC will consolidate enterprise-wide back-office functions of NRCS, FSA and RMA. 

Approximately 836 staff years and $124.3 million will be transferred from NRCS to FBC through 

both mandatory and discretionary funds. FBC will also receive staff and funding from FSA, RMA, 

and NRCS. See the FBC section for further details.

Through the Conservation Technical Assistance Program, NRCS works with land owners and 

managers to develop conservation plans that outline the specific conservation practices needed to 

improve farm operations and enhance farm environmental sustainability. While NRCS will 

continue to provide comprehensive conservation planning, the Budget reflects increased private 

sector contributions to conservation planning. NRCS will take specific steps to further increase the 

role of the private sector in conservation planning. For example, NRCS can partner with thirdparty private sector entities (known as Technical Service Providers) to collaborate and provide 

technical assistance for conservation planning and activities.

NRCS will also continue to improve technical assistance delivery to agricultural producers with 

continued investment in the Conservation Delivery Streamlining Initiative (CDSI). Since their 

realignment in the new mission area, FSA and NRCS have requested funding in 2019, to expand 

customer self-service for conservation, farm loans and farm programs through a common web 

portal. This portal, jointly managed by FSA and NRCS, would serve as a launch point for farmers 

and ranchers to apply for programs and access customer information across the mission area. 

Table FPC-16. KPM - Applied CTA Conservation Practices (millions of acres)

Key Performance Measure Baseline

2018 

Target

2019 

Target

Cropland with conservation applied to improve soil quality - EQIP 3.0 3.0 3.0 

Cropland with conservation applied to improve soil quality - CTA 5.9 5.9 5.9 

Environmental Quality Incentives Program (EQIP) 

EQIP provides assistance to landowners who face serious natural resource challenges (such as soil 

erosion, air quality, water quality and quantity, and the sustainability of fish and wildlife habitat) 

that impact soil, water and related natural resources, including grazing lands, wetlands, and 

wildlife habitat. EQIP will continue to be targeted to acres with the highest conservationbenefit.

The authority for EQIP’s Conservation Innovation Grant (CIG) program ends in 2018 and is 

subject to reauthorization in the next Farm Bill. In 2017, the CIG program focused on conservation 

finance; data analytics for natural resources; pay-for-success models to stimulate conservation 

adoption; precision conservation; water management technologies and approaches; and benefitting 

historically underserved farmers, ranchers and private forest landowners. 

Table FPC-17. KPM - Conservation Practices and Environmental Benefits

Key Performance Measure 2018 2019 

Baseline Target Target

Soil carbon retained on cropland to improve yields and sequester carbon 

(thousands of tons) 140 140 140

Sediment prevented from leaving cropland and entering waterbodies 

(millions of tons) 4.6 4.6 4.6 

Working land protected by conservation easements (thousands of acres) a 60.7 101.0 101.0 
26 2019 USDABUDGET SUMMARY

a Performance under the Agricultural Conservation Easement Program (ACEP) experiences a lag of approximately 

2 years due to the time required to identify, prioritize, and close real estate transactions. Accordingly, performance 

targets for 2019 reflects funding levels provided in 2017.

Agricultural Conservation Easement Program (ACEP) 

ACEP has two components: agricultural land easements, under which NRCS assists eligible 

entities to protect agricultural land by limiting non-agricultural land uses; and wetland reserve 

easements, under which NRCS provides technical and financial assistance to landowners to 

restore, protect and enhance wetlands through the purchase of wetlands reserve easements. NRCS 

continues to maintain existing easements and contracts formed under the previous programs. 

ACEP’s land easement component helps farmers and ranchers keep their land in agriculture while 

protecting grazing uses and related conservation values by conserving grassland, including 

rangeland, pastureland and shrubland. The wetland easement component supports habitat for fish 

and wildlife, including threatened and endangered species, reducing flooding, protecting 

biological diversity, and providing opportunities for educational, scientific and limited recreational 

activities. The program fosters public-private partnerships with landowners, Indian Tribes, State 

and local governments, and nongovernmental organizations through the use of cooperative 

agreements (agricultural land easements) and long term easements or 30-year contracts (wetland 

easements).

Regional Conservation Partnership Program (RCPP) 

Producers receive technical and financial assistance through RCPP while NRCS and its partners 

help producers install and maintain conservation activities. These projects may focus on water 

quality and quantity, soil erosion, wildlife habitat, drought mitigation, flood control, and other 

regional priorities. Partners include producer associations, State or local governments, Indian 

Tribes, non-governmental organizations, and institutions of higher education. 

Conservation Stewardship Program (CSP) 

CSP encourages participants to undertake new conservation activities in addition to maintaining 

and managing existing conservation activities. CSP operates under an annual limitation on new 

acres enrolled, and the 2014 Farm Bill extended the authority for CSP through 2018 with an annual 

enrollment cap of 10 million acres. CSP addresses natural resource concerns including soil quality, 

soil erosion, water quantity and quality, air quality, plant and animal resources, and energy 

efficiency.

Proposed Legislation 

The Budget proposes legislative changes to NRCS conservation programs. Specifically, the 

Budget proposed the increase funding for EQIP by $60 million per year and also proposes to limit 

participation in NRCS programs to participants that have an Adjusted Gross Income (AGI) of

$500,000 or less as well as changes to streamline conservation programs such as elimination of 

the CSP and the funding for the RCPP. The Administration supports the goals of the RCPP and 

will evaluate alternative mechanisms such as legislative flexibility that would allow public-private 

partnership approaches to conservation work. 
FARM PRODUCTION AND CONSERVATION 27

FARM PRODUCTION AND CONSERVATION BUSINESS CENTER

In October 2017, the FPAC Business Center (FBC) was formed to consolidate back-office 

functions within the newly formed FPAC mission area. FBC will be responsible for financial 

management, budgeting, human resources, information technology, acquisitions/procurement, 

customer experience, internal controls, risk management, strategic and annual planning, and other 

mission-wide activities in support of the customers and employees of FSA, NRCS, and RMA. The 

FBC will be established in 2018 via a transfer of funding and personnel from FSA, RMA, and 

NRCS. The FBC will also provide administrative support for the CCC.

Accordingly, the 2019 Budget reduces the direct appropriation for FSA, RMA, and NRCS and 

provides funding directly to the FBC. In addition, FBC would be funded through transfers from 

ACIF and Farm Bill conservation programs. In 2019, $272.7 million and 1,750 staff years will be 

available for the FBC. This includes, $131.5 million and 832 staff years from FSA, $17 million 

and 82 staff years from RMA, and $124.3 million and 836 staff years from NRCS. FBC will be 

funded by both mandatory and discretionary funds. 

Table FPAC-18. FPAC Business Center Budget Authority (millions of dollars)

Discretionary:

Item 2017

Actual

2018 

Estimate

2019 

Budget

FSA - Salaries and Expenses...................................................... - - $115 

NRCS - Conservation Technical Assistance .............................. - - 58 

NRCS - Soil Conservation ......................................................... - - 6 

RMA - Salaries and Expenses .................................................... - - 17 

Sub-Total, Discretionary Programs ......................................... - - 196 

FSA - Agriculture Credit Insurance Fund Transfer.................... - - 16 

Total, Discretionary Programs ...................................................... - - 212 

Mandatory: 

NRCS - Agricultural Conservation Easement Program ............. - - 8 

NRCS - Conservation Stewardship Program ............................. - - 21 

NRCS - Environmental Quality Incentives Program ................. - - 31 

Total, Mandatory Programs .......................................................... - - 60 

Total, FBC .................................................................................... - - 273 
28 2019 USDABUDGET SUMMARY

TRADE AND FOREIGN AGRICULTURAL AFFAIRS

MISSION

Agricultural trade is essential for the vitality of the U.S. agricultural sector and the economy as a 

whole. Agricultural exports account for 20 percent of the value of farm income, and make a critical 

contribution to the prosperity of local and regional economies across rural America through 

increased sales and higher commodity prices. Every $1 billion worth of agricultural exports 

supports an estimated 8,100 jobs and $1.28 billion in economic activity. In FY 2017, U.S. farm 

and food exports reached $140.5 billion, the third highest total on record. U.S. agricultural exports 

have continued to outpace U.S. agricultural imports since 1960, generating a surplus in U.S. 

agricultural trade. Agricultural exports in 2018 are expected to reach $140 billion.

The Trade and Foreign Agricultural Affairs mission area (TFAA), established by the Secretary in 

May, 2017, works to reduce trade barriers that impede or disadvantage U.S. agricultural exports 

and to open new markets for U.S. farm products. The mission area includes the activities of the 

Foreign Agricultural Service (FAS).

Recent U.S. successes in international trade include easing the entry of U.S. citrus into the EU 

market, an agreement with Argentina that allows U.S. pork entry for the first time since 1992, the 

return of American beef to China after a hiatus that began in 2004, an agreement that provides 

market access for U.S. rice exports to China for the first time, and the cancellation of the 2014 ban 

on U.S. poultry and poultry products to South Korea.

As part of the reorganization in 2017, the U.S. Codex Alimentarius Office was transferred from 

the Food Safety and Inspection Service to TFAA. The U.S. Codex Alimentarius Office is an 

interagency partnership that engages stakeholders in the development of international 

governmental and non-governmental food standards. The focus of the Codex Office aligns better 

with the mission of TFAA. The Under Secretary for Food Safety will continue to be the U.S. 

Codex Office Policy Committee Chair and the Office will continue to advocate science based 

codex policies.

FOREIGN AGRICULTURAL SERVICE

FAS administers a variety of programs that are designed to facilitate access to international 

markets and thereby help to support a competitive U.S. agricultural system. FAS also carries out 

activities that promote productive agricultural systems in developing countries and contribute to 

increased trade and enhanced global food security. Working bilaterally and with international 

organizations, FAS encourages the development of transparent and science-based regulatory 

systems that allow for the safe development and use of agricultural goods derived from new 

technologies. FAS works with other USDA agencies, the Office of the United States Trade 

Representative, and others in the Federal government to monitor and negotiate new trade 

agreements and enforce existing trade agreements. The United States has free trade agreements 

(FTA) with 20 countries around the world that expand export opportunities for U.S. food and 

agricultural producers. 
TRADE AND FOREIGN AGRICULTURAL AFFAIRS 29

Table TFAA-1. FAS Budget Authority (millions of dollars)

Item 2017

Actual

2018

Estimate

2019

Budget

Discretionary:

FAS Salaries and Expenses:

Salaries and Expenses (Direct Appropriation)......................... $197 $195 $193

Transfer from CCC Export Credit Program Account .............. 6 6 6

Total, FAS Salaries and Expenses ........................................ 203 201 199

Foreign Food Assistance:

McGovern-Dole International Food for Education Program a . 202 200 -

P.L. 480 Title II Donations ...................................................... 1,600 1,589 -

P.L. 480 Title I Program Account: Transfer to FSA S&E ......... 0 0 0

Total, Discretionary Programs ...................................................... 2,004 1,991 200

Mandatory:

Quality Samples Program........................................................... 1 3 3

Foreign Food Assistance:

Food for Progress - CCC Funded ............................................ 166 166 166

Bill Emerson Humanitarian Trust b.......................................... - - -

Farm Bill Market Development Programs:

Market Access Program........................................................... 188 200 200

Emerging Markets Program..................................................... 8 10 -

Foreign Market Development (Cooperator) Program c............ 32 35 -

Technical Assistance for Specialty Crops Program c ............... 8 9 -

Pima Agriculture Cotton Trust Funds c .................................... 15 16 -

Agricultural Wool Trust Fund ................................................. 27 28 30

Total, Farm Bill Market Development Programs.................. 278 298 230

Total, Mandatory Programs .......................................................... 445 467 399

Total, Current Law........................................................................ 2,449 2,458 599

Proposed Legislation d ................................................................ - - -166

Total, FAS..................................................................................... 2,449 2,458 433

a In 2017 and 2018, $5 million can be used for local and regional procurement. b Assets of the Trust can be released any time the Administrator of the U.S. Agency for International Development 

determines that P.L. 480 Title II funding for emergency needs is inadequate to meet those needs in any fiscal year. c Not confirmed in the baseline for 2019. d The Budget includes proposals for changes to certain programs above.

CCC Export Credit Guarantee Programs (GSM-102) 

Table TFAA-2. FAS CCC Export Credit Programs Program Level (PL) and Budget Authority (BA) 

(millions of dollars)

Item 2017 PL BA 2018 PL BA 2019 PL BA

GSM-102 Guarantees................................... $1,582 - $5,000 - $5,000 -

Facilities Financing Guarantees ................... - - 500 - 500 -

Total, CCC Export Credit ............................ 1,582 - 5,500 - 5,500 - 

The CCC export credit guarantee programs, administered by FAS in conjunction with FSA, 

provide payment guarantees for the commercial financing of U.S. agricultural exports. These 
30 2019 USDA BUDGETSUMMARY

programs facilitate exports to buyers in countries where credit is necessary to maintain or increase

U.S. sales.

The Budget includes an overall program level of $5.5 billion for CCC export credit guarantees in 

2019. This estimate reflects the level of sales expected to be registered under the export credit 

guarantee programs. However, the actual level of programming could vary from this estimate, 

depending upon program demand, market conditions, and other relevant factors during the course 

of the year. Of the total program level for export credit guarantees expected to be issued by CCC 

in 2019, $5 billion will be made available under the GSM-102 program, which provides guarantees 

on commercial export credit extended with short-term repayment terms (18 months). 

The Budget also includes an estimated program level of $500 million for facility financing 

guarantees. Under this activity, CCC provides guarantees to facilitate the financing of goods and 

services exported from the United States to improve or establish agriculture-related facilities in 

emerging markets. By supporting such facilities, these guarantees enhance sales of U.S. 

agricultural products to countries where demand is constricted due to inadequate storage, 

processing, or handling capabilities. 

Quality Samples Program (QSP)

Under QSP, CCC provides funding to assist private entities to furnish samples of U.S. agricultural 

products to foreign importers in order to overcome trade and marketing obstacles. The program, 

which is carried out under the authority of the CCC Charter Act, provides foreign importers with 

a better understanding and appreciation of the characteristics of U.S. agricultural products. 

Market Development Programs 

FAS administers a number of programs, in partnership with private sector cooperator 

organizations, which support the development, maintenance, and expansion of commercial export 

markets for U.S. agricultural commodities and products. In 2017, nearly 1,000 U.S. companies 

and organizations participated in 20 USDA endorsed trade shows in 14 countries. On-site sales 

totaled an estimated $300 million and the estimated total value of agricultural exports resulting 

from participation in foreign food and agricultural trade shows in 2017 was $2.35 billion.

Market Access Program (MAP)

Under MAP, CCC funds are used to reimburse participating organizations for a portion of the cost 

of carrying out overseas marketing and promotional activities, such as consumer promotions. MAP 

participants include nonprofit agricultural trade organizations, State-regional trade groups, 

cooperatives, and private companies that qualify as small businesses. MAP has a brand promotion 

component that provides export promotion funding to small companies and thereby helps expand 

the number of small and medium-sized entities that export. 

Emerging Markets Program (EMP)

EMP authorizes CCC funding to be made available to carry out technical assistance activities that 

promote the export of U.S. agricultural products and address technical barriers to trade in emerging 

markets. Many types of technical assistance activities are eligible for funding, including feasibility 

studies, market research, industry sector assessments, specialized training, and business 

workshops. 

Foreign Market Development (Cooperator) Program 

This program provides cost-share assistance to nonprofit commodity and agricultural trade 

associations to support overseas market development activities that are designed to remove long- 
TRADE AND FOREIGN AGRICULTURAL AFFAIRS 31

term impediments to increased U.S. trade. These activities include technical assistance, trade 

servicing, and market research. Unlike MAP, Cooperator Program activities are carried out on a 

generic commodity basis and do not include brand-name or consumer promotions. 

Technical Assistance for Specialty Crops (TASC) Program 

TASC is designed to address unique barriers that prohibit or threaten the export of U.S. specialty 

crops. Under the program, grants are provided to assist U.S. organizations in activities designed to 

overcome sanitary, phytosanitary, or technical barriers to trade.

Foreign Food Assistance

USDA supports global food security through in-country capacity building, basic and applied 

research, improved market information, statistics and analysis, as well as food assistance. FAS 

contributes to these efforts by carrying out a variety of food aid programs that support economic 

growth and development in recipient countries. 

McGovern-Dole International Food for Education and Child Nutrition Program 

The program provides for the donation of U.S. agricultural commodities and associated financial 

and technical assistance to carry out preschool and school feeding programs in foreign countries. 

Maternal, infant, and child nutrition programs also are authorized under the program. The Budget 

proposes to eliminate the program as part of the Administration’s effort to reprioritize Federal 

spending so that it advances the safety and security of the American people. 

International Food Aid 

Assistance provided under the authority of P.L. 480 is a primary means by which the United States 

provides foreign food assistance. Title I provides for sales of U.S. agricultural commodities 

governments and private entities of developing countries through concessional financing 

agreements, and donations through Food for Progress grant agreements. Title II provides 

emergency and development food assistance in foreign countries. 

P.L. 480 Title II 

P.L. 480 Title II grants fund emergency and development food aid programs authorized under Title 

II of the Food for Peace Act (P.L. 83-480). Funding for Title II is appropriated to the USDA and 

is administered by the U.S. Agency for International Development (USAID). There is no request 

for P.L. 480 Title II as part of an Administration effort to streamline foreign assistance, prioritize 

funding, and use funding as effectively and efficiently as possible. 

Food for Progress 

The Food for Progress Act of 1985 authorizes U.S. agricultural commodities to be provided to 

developing countries and emerging democracies that have made commitments to introduce and 

expand free enterprise in their agricultural economies. Food for Progress agreements can be 

entered into with foreign governments, private organizations, nonprofit agricultural organizations, 

cooperatives, or intergovernmental organizations. Agreements currently provide for the 

commodities to be supplied on grant terms. The Food for Progress authorizing statute provides for 

the use of CCC funding for commodity procurement, transportation, and associated noncommodity costs for the program. 

Bill Emerson Humanitarian Trust

The Bill Emerson Humanitarian Trust (the Trust) is a commodity and/or monetary reserve 

designed to ensure that the United States can meet its international food assistance commitments 

under P.L. 480 Title II. The Trust’s assets can be released any time the Administrator of the United
32 2019 USDA BUDGETSUMMARY

States Agency for International Development (USAID) determines that P.L. 480 Title II funding 

for emergency needs is inadequate to meet those needs in any fiscal year. When a release from the 

Trust is authorized, the Trust’s assets (whether commodities or funds) cover all commodity costs 

associated with the release. All non-commodity costs, including ocean freight charges; internal 

transportation, storage, and handling overseas; and certain administrative costs are paid for by 

CCC.

No assistance has been provided using the Trust’s authority in 2017 or to date in 2018. As of 

December 31, 2017, the Trust held $282 million of cash and no commodities.

Trust Funds

The 2014 Farm Bill authorized two trust funds for payments to reduce injury to domestic 

manufacturers resulting from U.S. tariffs on inputs to their manufacturing processes. These include 

the Agricultural Wool Apparel Manufacturers Trust Fund, which provides CCC funding for up to

$30 million for reducing injury to domestic manufacturers resulting from tariffs on wool fabric 

that are higher than tariffs on certain apparel articles made of wool fabric, and the Pima Agriculture 

Cotton Trust Fund, which provides CCC funding of $16 million for reducing injury to domestic 

manufacturers resulting from tariffs on cotton fabric that are higher than tariffs on certain apparel 

articles made of cotton fabric. Payments are made to manufacturers that submit an affidavit 

certifying that U.S. tariffs caused them injury. 

Salaries and Expenses

FAS headquarters staff and attaches covering more than 170 countries partner with other U.S. 

government agencies, trade associations, as well as regional and international organizations in a 

coordinated effort to negotiate trade agreements; establish transparent, science-based standards; 

and resolve trade barriers. 

Table TFAA-3. FAS Salaries and Expenses (millions of dollars)

Item 2017

Actual

2018

Estimate

2019

Budget

Trade Policy .................................................................................. $83 $82 $95

Trade Promotion ........................................................................... 71 70 62

Capacity Building / Food Security................................................ 43 43 36

Total, Appropriated Programs .................................................... 197 195 193

Reimbursable Program Activities:

FAS Computer Facility and Other IRM Costs Funded by CCC 23 23 24

USAID and Dept. of State Assist. and Recon. and Stabilization 95 92 87

Other Reimbursable Agreements ............................................... 24 27 20

Total, Reimbursable Program Activities ................................. 142 143 132

Total, FAS Salaries and Expenses ................................................ 338 338 325 

Unnecessarily restrictive regulations to address risks to human, animal, and plant health (SPS) are 

major barriers to the expansion of global agricultural trade. The proliferation of labeling, 

registration, certification, and quality standards requirements for routinely consumed food 

products can also result in unnecessary technical barriers to trade (TBT). World Trade 

Organization (WTO) members are obligated to notify fellow members of changes in SPS, and TBT 

related measures that may affect trade via the WTO committees on Agriculture, SPS and TBT. 

FAS reviews notifications to assess their potential impact on trade and challenges measures that
TRADE AND FOREIGN AGRICULTURAL AFFAIRS 33

are unnecessarily trade restrictive. In 2017, FAS helped challenge 255 barriers to the export of 

U.S. agricultural products through this process, helping to spur exports. Working in concert with

other U.S. trade and regulatory agencies and in frequent communication with private sector 

stakeholders, FAS works to improve market access for U.S. agricultural products and reduce the 

harm to the industry resulting from unnecessarily restrictive regulations by monitoring and 

enforcing international rules, strengthening the global regulatory framework, and encouraging the 

adoption of international standards. 

FAS promotes organic standards and supports trade in U.S. agricultural products produced with 

new technologies by monitoring worldwide developments in technologies, including their 

adoption and regulation by trading partners, and promoting the use of new technologies in support 

of food security and sustainable agriculture. A proactive stance is critical, because the development 

of divergent regulatory systems for new technologies could bring a virtual halt to trade in some 

commodities with a potential trade impact reaching billions of dollars. 

Table TFAA-4. KPM – Export Support (billions of dollars)

Key Performance Measure Baseline

2018 

Target

2019 

Target

Value of agricultural exports resulting from participation in foreign food 

and agricultural trade shows $1.52 $1.70 $1.75 

Value of trade preserved through resolution of foreign market access issues 

such as U.S. export detainment, restrictive SPS and TBT issues, and trade 

regulations 3.6 4.0 4.5 

In 2019, FAS will conduct its activities and programs through offices in Washington, D.C. and at 

93 overseas locations. The overseas offices represent and advocate for U.S. agricultural interests; 

provide reporting on agricultural policies, production, and trade for more than 170 countries; assist

U.S. exporters, trade groups, and State export marketing officials in their trade promotion efforts; 

and help to implement technical assistance and trade capacity building programs that contribute to 

increased food security. The Budget provides an appropriated funding level of $193 million for 

FAS activities. That amount includes $10 million to increase staff resources for skilled trade 

analysts and researchers to strengthen monitoring and enforcement of existing trade agreements, 

support trade related technical assistance, and respond to urgent situations when trade is disrupted. 

In addition, the Budget assumes an estimated $132 million in funding to be made available to FAS 

through reimbursable agreements. The largest components of this are funding for technical 

assistance, training, and research activities that FAS carries out overseas on behalf of USAID, 

foreign governments, and international organizations, and development assistance activities that 

are funded by USAID and the Department of State. Although funded by other agencies, these 

activities are an important component of the Department’s efforts to support economic 

development and enhance food security in developing countries. 

Proposed Legislation 

The Budget proposes legislative changes to the programs administered by FAS, including 

terminating the Food for Progress Program and the Agricultural Wool Apparel Manufacturers 

Trust Fund. See Appendix for details. 
34 2019 USDA BUDGETSUMMARY

RURAL DEVELOPMENT

MISSION

Rural Development (RD) provides financial and technical assistance to rural communities, 

residents, businesses, and private and public entities for a broad range of purposes that bring 

prosperity and better living to rural America. These programs are grouped within three agencies:

(1) the Rural Business-Cooperative Service (RBS) provides assistance for the development of 

business and industry, including small businesses, and renewable energy and energy improvement 

projects; (2) the Rural Utilities Service (RUS) provides assistance for water and waste disposal, 

rural electric and telecommunications, including broadband access; and (3) the Rural Housing 

Service (RHS) provides assistance for home ownership, multi-family housing, and essential 

community facilities such as healthcare and public safety infrastructure.

USDA assistance through these program will increase availability of high-speed e-connectivity, 

strengthen community infrastructure, advance education opportunities, modernize healthcare, 

strengthen utility infrastructure, support workforce training and veterans’ employment to enhance 

quality of life in the rural communities. RD programs will also expand stakeholder participation 

and involvement of local, tribal and state governments in the contribution to rural prosperity.

The type of assistance offered includes direct and guaranteed loans, grants, and other payments. 

Several programs require or encourage recipients to contribute their own resources or obtain thirdparty financing to support the total cost of projects, thereby leveraging government support with 

private sector financing.

Direct and guaranteed loans subsidy costs depends on a number of factors, including default rates, 

the prevailing interest rates, whether the interest rate is subsidized by the government, and whether 

there are fees. The loan programs all have administrative costs as well. In the tables, the budget 

authority for each program reflects the subsidy cost to the government to support the loan level. 

Several of the loan programs operate at a very low or negative subsidy rate. These less costly loan 

programs provide the bulk of the financial assistance in RD’s loan portfolio. 
RURAL DEVELOPMENT 35

RURAL UTILITIES SERVICE

In many areas of rural America, families and communities lack access to the modern utility 

infrastructure, such as reliable electric power, high-speed broadband, and clean drinking water that 

is often taken for granted in more urban and suburban areas. RUS focuses on a number of efforts, 

including expansion of broadband access and seeking commercial investment, to modernize utility 

infrastructure projects through increased public-private partnership activities.

Table RD-1. RUS Program Level (PL) and Budget Authority (BA) (millions of dollars)

Item 2017 PL BA 2018 PL BA 2019 PL BA

Discretionary:

Electric Programs:

Direct Loans................................................ $5,500 - $5,500 - $5,500 -

Direct Loans, modifications a...................... - $14 - $14 - -

Rural Energy Saving Program .................... 55 8 57 8 - -

Guaranteed Loans ....................................... 750 - 750 - - -

Telecommunications Programs:

Treasury Loans ........................................... 345 3 345 3 173 $1

Direct FFB .................................................. 345 - 345 - 517 -

Distance Learning and Telemedicine Grants 27 27 26 26 24 24

Broadband Programs:

Direct Loans................................................ 27 5 27 4 23 5

Grants.......................................................... 35 35 34 34 30 30

High Energy Costs Grants............................. 10 10 10 10 - -

Water and Waste Disposal Programs:

Direct Loans................................................ 1,200 52 1,200 52 1,200 -

Guaranteed Loans ....................................... 50 0 52 0 - -

Grants.......................................................... 509 509 505 505 - -

Subtotal, Water and Waste b ..................... 1,759 561 1,757 557 1,200 -

Subtotal, RUS Programs................................ 8,852 662 8,851 657 7,467 59

Salaries and Expenses................................. 33 33 33 33 64 64

Total, Current Law........................................... 8,885 695 8,884 690 7,531 123

Proposed Legislation c ................................... - - - - -129 -129

Total, RUS ....................................................... 8,885 695 8,884 690 7,402 -6

a Modifications loan level is up to $600 million which are within the $5.5 billion program level. b The total does not reflect $51 million in Water and Waste unobligated balances proposed to be cancelled in 2019. c The Budget includes proposals for changes to certain programs above.

Electric and Telecommunications Programs 

The Electric and Telecommunications programs administered by RUS provide loans to establish, 

expand, and modernize vital components of the infrastructure of rural America. RUS programs 

leverage private sector investments as well as fill credit gaps that still exist for some rural areas 

and borrowers. 

Electric Loan Program 

The Budget requests $5.5 billion for electric loans to construct, acquire, and improve electric 

infrastructure including renewable energy, electric transmission, distribution, smart grid 

technology, energy efficiency, grid resiliency, and security enhancements.
36 2019 USDA BUDGETSUMMARY

The electric program key performance measure identifies the number of borrowers/subscribers 

receiving new and/or improved electric service. The Budget proposes levels of funding to support 

broader scale energy development activities, such as smart grid, renewable energy generation, 

energy conservation and energy efficiency programs.

Table RD-2. KPM – Improving Electric Facilities

Key Performance Measure Baseline

2018 

Target

2019 

Target

Borrowers/subscribers benefiting (millions) 6.6 4.5 5.1 

Telecommunication Loan Program 

The Budget supports $690 million in telecommunications loans, of which $173 million is for direct 

Treasury Rate loans and $517 million is for guaranteed loans through the Federal Financing Bank 

(FFB). The Budget requests this split because FFB loans can be used to refinance private sector 

debt as well as finance new indebtedness. Both types of telecommunication loans are used for the 

improvement and construction of telecommunication facilities that expand broadband and econnectivity to the communities with populations of up to 5,000. 

Broadband, Distance Learning and Telemedicine Programs 

The Budget includes $23 million in program level for broadband direct loans and $30 million for 

broadband grants to support new or improved broadband access across rural America in the 

communities with populations of up to 20,000. This program provides capital access for 

strengthening e-connectivity that broadens economic opportunities and job creation in rural 

America. Improved connectivity means rural communities can offer robust business services, 

expand access to modern healthcare, and improve education.

The Budget also includes $24 million for Distance Learning and Telemedicine (DLT) grants. This 

program is designed specifically to assist rural communities that would otherwise be without 

access to learning and medical services over the Internet.

The key performance measure displays information for the traditional telecommunications 

broadband and DLT programs. 

Table RD-3. KPM – Improving Telecommunication Services

Key Performance Measure Baseline

2018 

Target

2019 

Target

Borrowers/subscribers benefiting (thousands) 158 170 170 

Water and Waste Disposal Program 

The Water and Waste Disposal Program has provided financing for rural communities to establish, 

expand or modernize water treatment and waste disposal facilities. These facilities provide safe 

drinking water and sanitary waste disposal for residential users, and help communities thrive by 

attracting new business. Projects are designed to improve the energy efficiency of the water and 

waste facilities and to improve water conservation efforts.

The Budget requests $1.2 billion in direct loans for water and waste disposal facilities to provide 

safe and sanitary water services.
RURAL DEVELOPMENT 37

The Budget also proposes to raise the population limit from 10,000 to 20,000 to allow more rural 

communities be eligible for the Water and Waste Disposal loans.

Financing is available only to those communities with low median household income levels. 

Priority is given to public entities serving areas with populations less than 5,500 and applying for 

loans to restore a deteriorating water system or to improve, enlarge or modify an inadequate waste 

facility.

Proposed Legislation 

The Budget proposes the elimination of interest payments to the Electric and Telecommunications 

Cushion of Credit account.

RURAL HOUSING SERVICE

Table RD-4. RHS Program Level (PL) and Budget Authority (BA) (millions of dollars)

Item 2017 PL BA 2018 PL BA 2019 PL BA

Discretionary:

Single Family Housing (Sec. 502):

Direct Loans............................................. $1,000 $68 $1,000 $67 - -

Guaranteed Loans .................................... 24,000 - 24,000 - $24,000 -

Multi Family Housing:

Direct Loans (Sec. 515) ........................... 35 10 39 10 - -

Guaranteed Loans (Sec. 538)................... 230 - 230 - 250 -

Very Low-Income Repair (Sec. 504):

Direct Loans............................................. 26 4 30 4 - -

Grants....................................................... 29 29 29 29 - -

Farm Labor Housing Grants (Sec. 516) ..... 8 8 8 8 - -

Farm Labor Housing Loans (Sec. 514) ...... 24 7 26 7 - -

All Other Direct Loans ............................... 20 1 25 1 10 -

Grants and Payments:

Rental Assistance/Vouchers (Sec. 521) ... 1,405 1,405 1,395 1,395 1,351 $1,351

Mutual and Self-Help (Sec. 523) ............. 30 30 30 30 - -

Multi-Family Housing Revitalization...... 37 22 41 22 - -

Multi-Family Housing Rev., Pilot Project 1 1 1 1 - -

Multi-Family Housing Voucher Program 19 19 19 19 - -

Rural Housing Preservation ..................... 5 5 5 5 - -

Community Facilities Programs:

Direct Loans a........................................... 2,600 - 2,600 - 3,500 -

Guaranteed Loans .................................... 148 3 101 3 - -

Grants....................................................... 44 44 43 43 - -

Subtotal, RHS Programs............................. 29,662 1,656 29,623 1,645 29,111 1,351

Salaries and Expenses.............................. 412 412 409 409 392 392

Total, RHS .................................................... 30,074 2,068 30,033 2,055 29,503 1,743 

a The total does not reflect $3 million in Community Facilities Direct subsidy unobligated balances proposed to be 

cancelled in 2019.
38 2019 USDA BUDGETSUMMARY

Single Family Loan Program 

The Single Family Housing programs support homeownership opportunities to low-income 

families in rural areas. Guaranteed loans are limited to families with incomes less than 115 percent 

of area median income. The interest rate on guaranteed loans is negotiated between the borrower 

and the private lender. Both direct and guaranteed loans are means-tested.

The Budget proposes to eliminate the Single Family Housing direct loan program as the focus 

instead will be on creating homeownership opportunities through the guaranteed program. The 

Budget provides a $24 billion loan level for the guaranteed single family housing program. This 

level is expected to provide approximately 164,000 homeownership opportunities. The Budget 

also includes $10 million in program level for single family housing credit sales of acquired 

property. 

Multi-Family Housing Programs 

The Multi-Family Housing program (direct and guaranteed portfolio) provides financing for rental 

housing projects and rental assistance payments for the low-income tenants of those projects. The 

portfolio currently includes about 14,500 projects which provide 453,000 total housing units. 

Approximately 651,000 limited-income individuals, many of whom are elderly, with an average 

annual income of about $13,181 reside in approximately 426,600 direct portfolio units. 

The Budget requests $1.351 billion for rental assistance payments to fully fund all contract 

renewals, ensuring that the residents living in USDA-financed multi-family housing properties can 

continue to benefit from these grants and vouchers. Of this total, $1.331 billion is for rental 

assistance payments. Most Section 515 projects that are financed with direct loans receive rental 

assistance payments. These payments are made to the project sponsors and are used to reduce the 

rents of occupants to no more than 30 percent of the family income. For those tenants living in 

projects leaving the Section 515 program, the Budget also includes $20 million for the multifamily housing voucher program. The Budget proposes to eliminate the multi-family housing 

preservation and revitalization programs and the voucher program will be consolidated with the 

Rental Assistance program account.

The Budget proposes to require tenants utilizing rental assistance to contribute a minimum rent of 

$50 per month, unless the tenant qualifies for a hardship exemption as determined by the Secretary. 

USDA’s hardship exemptions will be in line with the Department of Housing and Urban 

Development’s hardship exemptions. 

Section 538 guaranteed loans for multi-family housing would be funded at $250 million, which 

will be the main focus of new construction in 2019. The Budget proposes to eliminate the multifamily housing direct loan program and the farm labor housing program. 

Community Facilities Loan Program 

Community Facilities loans provide funding for a wide range of essential community facilities to 

rural communities with populations of 20,000 or less, with priority given to healthcare, public 

safety, and education facilities.

The Budget provides $3.5 billion in program level funding for Community Facilities direct loans. 

Funding is provided for direct rather than guaranteed loans and grants due to the higher subsidy 

cost of the guaranteed program.
RURAL DEVELOPMENT 39

Table RD-6 shows the percent of the approximately 46 million rural residents who are provided 

with improved essential community services such as healthcare, public safety, and educational 

facilities.

Table RD-5. KPM – Percentage of Rural Population Provided Access to Community Facilities

Key Performance Measure Baseline

2018 

Target

2019 

Target

Healthcare Facilities 6.4 6.8 6.8 

Public Safety Facilities 14.9 4.3 4.3 

NOTE: Some facility types serve more than one purpose.

RURAL BUSINESS-COOPERATIVE SERVICE

Table RD-6. RBS Program Level (PL) and Budget Authority (BA) (millions of dollars)

Item 2017 PL BA 2018 PL BA 2019 PL BA

Discretionary:

Business and Industry Guar. Loans............... $922 $35 $864 $35 - -

Rural Business Development Grants............. 24 24 24 24 - -

Delta Regional Authority Grants................... 3 3 3 3 - -

Appalachia Regional Authority Grants ......... 3 3 3 3

Intermediary Relending Program .................. 19 5 24 5 - -

Healthy Food Financing Initiative................. 1 1 1 1 - -

Rural Economic Development: a

Direct Loans................................................ 42 - 39 - - -

Grants.......................................................... 10 - 10 - - -

Rural Cooperative Development Grants ....... 6 6 6 6 - -

Small, Socially Disad. Producer Grants ........ 3 3 3 3 - -

Appropriate Tech. Transfer to Rural Areas... 3 3 3 3 - -

Value-Added Producer Grants ...................... 15 15 15 15 - -

Rural Energy for America Guar. Loans ........ 8 0 9 0 - -

Subtotal, RBS Programs................................ 1,058 99 1,003 98 - -

Salaries and Expenses................................. 5 5 4 4 - -

Total, Discretionary Programs ......................... 1,063 103 1,007 102 - -

Mandatory:

Farm Bill:

Rural Microentrepreneur Assistance:

Direct Loans ............................................. 6 1 6 1 - -

Grants ....................................................... 2 2 2 2 - -

Biorefinery for Advanced Biofuels............. 14 14 14 14 - -

Rural Energy for America Loans................ 301 14 524 20 $487 $22

Rural Energy for America Grants............... 33 33 26 26 28 28

Total, Mandatory Programs ............................. 356 64 572 64 515 50

Total, Current Law........................................... 1,419 167 1,580 166 515 50

Proposed Legislation b ................................... - - - - -515 -50

Total, RBS ....................................................... 1,419 167 1,580 166 - - 

a Funding for these programs is provided from earnings from electric cooperative investments and fees. b The Budget includes proposals for changes to certain programs above.
40 2019 USDA BUDGETSUMMARY

The Budget proposes to eliminate all RBS programs as priority is given to programs that do not 

have a cost to the taxpayer.

Proposed Legislation 

The Budget proposes to eliminate funding for Rural Economic Development grants and funding 

provided in the 2014 Farm Bill for the Rural Energy for America Program. 

RURAL DEVELOPMENT SALARIES AND EXPENSES

In USDA’s efforts to enhance customer services with streamlined processes, RD is making strides 

to reduce any redundancies and inefficiencies. Supporting these objectives, the Budget proposes a 

staff level of 3,945 employees, a reduction of 880 staff years. This reflects the level needed to 

carry out the programs funded in the budget request. The Budget provides $612 million for salaries 

and expenses, including one-time expenses related to the corresponding workforce restructuring 

that will enable RD to streamline program delivery and service to its customers.

Table RD-7. RD Salaries and Expenses (millions of dollars)

Item 2017

Actual

2018

Estimate

2019

Budget

Salaries and Expenses:

Appropriation ............................................................................. $226 $233 $156

STEM project study ................................................................... 1 0 -

Transfers:

Rural Water and Waste Program................................................ - - 18

Rural Electric and Telecommunications Loan Program............. 33 33 38

Broadband Loan Program .......................................................... - - 8

Rural Housing Insurance Fund Program .................................... 412 410 244

Rural Community Facilities Loan Program ............................... - - 148

Rural Development Loan Fund Program ................................... 5 4 -

Total, Transfers........................................................................ 450 447 456

Total, Salaries and Expenses......................................................... 677 681 612 
FOOD, NUTRITION,AND CONSUMER SERVICES 41

FOOD, NUTRITION, AND CONSUMER SERVICES

MISSION

The programs and funding of Food, Nutrition, and Consumer Services (FNCS) provide access to 

safe, nutritious, and wholesome meals, while promoting a healthy diet. 

Within FNCS, the Food and Nutrition Service (FNS) administers USDA’s domestic nutrition 

assistance programs. Working in partnership with State agencies and other cooperating 

organizations, FNS helps ensure children and low-income Americans have sufficient food to 

support nutritious diets. A recent reorganization incorporated the Center for Nutrition and Policy 

Promotion (CNPP) into FNS. CNPP improves the health of Americans by developing and 

promoting dietary guidance that links the best evidence-based, scientific research to the nutrition 

needs of Americans. Over the course of a year, one in four Americans will be served by one of 

USDA’s 15 nutrition assistance programs. FNCS is committed to continually improving the 

performance, efficiency, and integrity of these programs.

Federal staff leverage their efforts by working with State and local partners to deliver nutrition 

assistance through the Supplemental Nutrition Assistance Program (SNAP); Child Nutrition 

Programs, including the National School Lunch Program, the School Breakfast Program, the 

Summer Food Service Program (SFSP), and the Child and Adult Care Food Program; the Special 

Supplemental Nutrition Program for Women, Infants and Children (WIC); The Emergency Food 

Assistance Program (TEFAP); the Food Distribution Program on Indian Reservations (FDPIR); 

and several similar programs targeted to specific needs.

In the past year FNS moved to reduce administrative burden and restore flexibility in the school 

meal programs by publishing a regulation that increases options for schools that continue to face 

challenges meeting specific requirements related to whole grains, sodium, and flavored milk. 

Further, in the wake of many significant natural disasters, FNS provided thousands of pounds of 

USDA Foods that were distributed through voluntary organizations at feeding sites and shelters 

and provided Disaster-SNAP benefits and replacement SNAP benefits to eligible low income, 

disaster-affected households. Finally, FNS took stepsto support SNAP participantsin transitioning 

to self-sufficiency by maintaining employment and training programs and initiatives that help 

SNAP participants find stable employment. In FY 2017 CNPP kicked off the process of leading 

the quinquennial 2020 Dietary Guidelines for Americans by holding a new series of listening 

sessions with a diverse group of interested stakeholders, which underlined the commitment to 

increased transparency and accountability in the guideline development. 

Table FNCS-1. KPM -Food Insecurity

Key Performance Measure Baseline

2018 

Target

2019 

Target

Percent of American Households with Consistent, Dependable 

Access to Food 87.7 87.9 88.0 

Note: Baseline is FY 2016, the most recent year for which data are available
42 2019 USDA BUDGETSUMMARY

FOOD AND NUTRITION SERVICE

The Budget provides funding for the major nutrition assistance programs, accounting for projected 

program participation and food cost inflation. It seeks to prevent and reduce food insecurity and 

to improve the nutritional status of recipients.

To support FNS’ work to identify and eliminate fraud, waste, and abuse, the Budget provides 

resources for program integrity efforts in all of the major programs, including SNAP, WIC, and 

the Child Nutrition Programs.

FNS will continue efforts to promote healthy eating in part by the use and promotion of MyPlate 

and the Dietary Guidelines for Americans. CNPP works in collaboration with the Department of 

Health and Human Services on the Dietary Guidelines for Americans to promote health and 

prevent chronic disease.

Table FNCS-2. FNS Budget Authority (millions of dollars)

Item 2017

Actual

2018

Estimate

2019

Budget

Discretionary:

Special Supplemental Nutrition Program (WIC) a...................... $6,350 $6,313 $5,750

Commodity Assistance Program:

Commodity Supplemental Food Program ............................... 236 238 -

The Emergency Food Assistance Program (TEFAP), Soup 

Kitchens, Food Banks......................................................... 59 59 54

Farmers' Market Nutrition Program......................................... 19 19 -

Pacific Island Assistance and Disaster Assistance................... 1 1 1

Nutrition Services Incentive Program b.................................... 3 3 -

Total, Commodity Assistance Program ................................ 318 320 55

Nutrition Programs Administration............................................ 171 170 161

Total, Discretionary Programs ...................................................... 6,839 6,803 5,966

Mandatory:

WIC: Universal Product Database ............................................. 1 1 1

Supplemental Nutrition Assistance Program (SNAP)................ 78,481 73,613 73,218

Child Nutrition Programs (CNP)................................................ 22,794 24,244 23,147

Permanent Appropriations.......................................................... 187 190 193

Farm Bill:

Seniors Farmers' Market Nutrition Program............................ 21 21 21

Total, Mandatory Programs .......................................................... 101,484 98,069 96,580

Total, Current Law........................................................................ 108,323 104,872 102,546

Proposed Legislation c ................................................................ - - -17,169

Total, FNS..................................................................................... 108,323 104,872 85,377 

a Does not reflect $850 million in unobligated balances cancelled in 2017 and 2018 and $215 million in 2019. b Funds are transferred from the Department of Health and Human Services, Administration on Aging. Funds for 

2019 will be determined at a later date. c The 2019 Budget includes proposals for changes to certain programs above.
FOOD, NUTRITION,AND CONSUMER SERVICES 43

Figure FNCS-1. FNS Budget Authority

Supplemental Nutrition Assistance Program (SNAP)

SNAP will continue to respond to economic need. In 2019, participation is estimated to fall to an 

average level of 40.8 million participants per month from 42.2 million in 2018. The participation 

rate among eligible SNAP recipients was 83 percent in 2015, unchanged from 2014. While SNAP 

continues to respond to economic need, FNS will work to provide better customer service to 

participants by providing States flexibility to test new ways to administer programs.

SNAP Employment & Training (E&T) is a State administered program designed to help 

participants move towards self-sufficiency. States have flexibility in designing E&T programs that 

meet the needs of their participants and local economy. In an effort to promote self-sufficiency, 

the Budget supports E&T activities that engage able-bodied adults in education and skills-based 

training and encourages State and local innovations in training, case management, and program 

design that promotes self-sufficiency and achieves long-term stability in employment.

Table FNCS-3. KPM – SNAP E&T Participation

90

80 $78

$74 $73

70

60

50

40

30 $23 $24 $23

20

10 $6.4 $6.3 $5.8

0

WIC

2017

CNP

2018

SNAP

2019

$Billions

Key Performance Measure Baseline

2018 

Target

2019 

Target

Percentage of SNAP Employment & Training participants engaged in 

education and skills-based training 33 35 40 

NOTE: Baseline is FY 2016, the most recent year for which data are available.

FDPIR provides food packages to Indian Tribal Organizations to improve nutrition and provide 

culturally appropriate sustenance. The Budget fully funds FDPIR food and administrative costs 

with a request of $153 million. The program is projected to serve 95,000 participants a month in 

2019, down from 104,000 in 2018. 
44 2019 USDA BUDGETSUMMARY

Child Nutrition Programs 

Through subsidies for meals that meet program standards, the National School Lunch Program, 

School Breakfast Program, Summer Food Service Program, Child and Adult Care Food Program, 

Fresh Fruit and Vegetable Program, and Special Milk Program assist State and local governments 

and private non-profit organizations in ensuring that children in schools and child care – and adults 

in adult day care programs – receive meals that meet their nutritional needs, foster healthy eating 

habits, reduce the number of overweight and obese children, and safeguard their health. The 

Budget funds the Child Nutrition Programs through new appropriations and prior year balances, 

at a level that will support anticipated increases in participation and food cost inflation. The Budget 

projects serving 5.25 billion lunches and snacks (an increase of 55.6 million, or 1.1 percent, over 

the current estimate for 2018) and 2.61 billion breakfasts in schools, 2.21 billion meals in child 

and adult care centers, and 156.2 million meals through Summer Food Service Program.

Table FNCS-4. KPM - National School Lunch Program (NSLP) Participation

Key Performance Measure Baseline

2018 

Target

2019 

Target

Annual percentage of eligible children participating in NSLP 58 59 59 

Whereas more than 22 million children receive free or reduced price meals on school days, about 

one in six, or approximately 3.8 million children, receive free meals when school is not in session. 

USDA has been working to reduce food insecurity and hunger among school children in the 

summer. In 2017, 151.9 million meals were served during summer, including lunches and 

breakfasts served in the Summer Food Service Program as well as in schools through the Seamless 

Summer Option. 

As part of this effort to reduce child food insecurity during the summer months, the Department is 

continuing to conduct the Summer Electronic Benefit Transfer (Summer EBT) demonstration 

projects. The projects have shown that providing a food benefit or an electronic debit card during 

the summer to low-income households with school-aged children can reduce severe food 

insecurity among children and improve children’s diets. To help address the large number of lowincome children at risk of food insecurity during the summer, the Budget provides about $23 

million to pilot new projects in summer 2019. 

Farm to School initiatives are funded at $8.5 million, with $3.5 million for the Farm to School 

Team and $5 million provided annually under Section 18 of the Richard B. Russell National School 

Lunch Act for Farm to School grants. These grants ensure continued support of local and regional 

food systems by facilitating linkages between schools and their local food producers. 

WIC

WIC helps improve the health and nutritional intake of low-income pregnant, breastfeeding and 

postpartum women, infants and children up to their fifth birthday. WIC serves about half of all 

babies in the United States. It provides participants with benefits, redeemable at certified WIC 

retailers, for foods dense in nutrients known to be lacking in the diets of eligible groups. The 

program also provides nutrition education, breastfeeding counseling, and referrals to critical health 

and social services.

The Budget includes $5.75 billion for WIC to serve all eligible participants projected to seek WIC 

benefits. The WIC program has been experiencing lower-than-expected participation rates, due to 

continued flat or declining birth rates – particularly among mothers under the age of 30. WIC has
FOOD, NUTRITION,AND CONSUMER SERVICES 45

experienced a buildup of unobligated balances in the program and the Budget includes a proposal 

to cancel $215 million of these balances while still enabling the program to continue to serve all 

eligible women, infants, and children. In 2019, an average of 6.9 million low-income women, 

infants and children are expected to participate in the program each month. 

Commodity Assistance Program (CAP) 

The Budget provides $55 million for CAP, a $262 million decrease from 2018. The Budget does 

not provide funding for the Commodity Supplemental Food Program. 

Nutrition Programs Administration (NPA) 

The Budget provides $161 million for NPA to support Federal management and oversight of 

USDA’s investment in nutrition programs. This will help ensure oversight and program integrity, 

simplify and improve the programs, and encourage healthy and nutritious diets. The Budget 

provides $12 million for CNPP to develop the 2020 quinquennial Dietary Guidelines for 

Americans, for which USDA is the lead agency.

Key Indicators

Table FNCS-5. FNS Key Indicators

Item 2017

Actual

2018

Estimate

2019

Budget

Average Participation, Millions:

Supplemental Nutrition Assistance Program (per month).......... 42.2 42.2 40.8

Free School Lunch ..................................................................... 20.0 20.3 20.1

All School Lunches (per day) .................................................. 30.1 30.4 30.7

Free School Breakfast ................................................................ 11.5 11.8 12.1

All School Breakfasts (per day)............................................... 14.7 15.0 15.2

WIC (per month) ........................................................................ 7.3 7.0 6.9

Commodity Supplemental Food Program (CSFP):

Elderly (per month).................................................................. 0.63 0.73 -

FDPIR (per month)..................................................................... 0.09 0.10 0.10

Average/Person/Month Food Benefit:

Supplemental Nutrition Assistance Program.............................. $125.99 $123.78 $126.71

WIC ............................................................................................ 41.31 41.60 42.80

CSFP: WIC (FNS Funded)......................................................... 21.53 22.98 -

CSFP: Elderly (FNS Funded)..................................................... 19.38 20.03 -

FDPIR (FNS Funded)................................................................. 76.09 68.36 70.97

School Lunch:

Free .......................................................................................... 3.24 3.32 3.39

Reduced ................................................................................... 2.84 2.91 2.99

Paid .......................................................................................... 0.36 0.37 0.38

School Breakfast:

Free .......................................................................................... 2.05 2.10 2.15

Reduced ................................................................................... 1.75 1.80 1.85
46 2019 USDA BUDGETSUMMARY

Figure FNCS-2. People Served Through Nutrition Assistance Programs

Proposed Legislation 

The Budget includes a bold new approach to nutrition assistance that combines the use of 

traditional SNAP Electronic Benefit Transfer cards with a USDA Foods Box that contains 100- 

percent American grown products. In addition, the Budget focuses on innovative administrative 

reforms on outcome-based employment strategies. This expands on previous proposals to 

strengthen expectations for work among able-bodied adults that will lead to self–sufficiency, 

reserves benefits for those most in need, promotes efficiency in State operations, and improves 

program integrity. Specifically, the USDA Foods Box proposal within SNAP has the potential to 

reduce waste, fraud, and abuse by limiting opportunities for benefits to be misused or trafficked. 

50

45 42.2 42.2 40 8

40

35

30.1 30.4 30.7

30

25

20

15

10 7.3 7.0 6.9

5

0

WIC School Lunch SNAP

2017 2018 2019

People Served (Millions)
FOOD SAFETY 47

FOOD SAFETY

MISSION

Foodborne illness is recognized as a significant public health problem in the United States. About 

48 million people (one in six Americans) get sick, 128,000 are hospitalized, and 3,000 die each 

year from foodborne diseases, according to the latest estimates from the Centers for Disease 

Control and Prevention (CDC). USDA and other Federal agencies are working in cooperation to 

ensure that Americans have increased access to safe and healthy food. 

The Food Safety mission area is responsible for ensuring the Nation’s commercial supply of meat, 

poultry, and egg products is safe, wholesome, and properly labeled and packaged. This includes 

products produced domestically in Federally-inspected establishments, as well as products 

imported from foreign countries.

The mission area includes the activities of the Food Safety and Inspection Service (FSIS), which 

provides Federal inspection of meat, poultry and processed egg products establishments; supports 

comparable State inspection programs; implements the Public Health Information System to assign 

and track science-based, data-driven inspections; and determines international equivalence of 

foreign systems. Additionally, FSIS coordinates the development of its policies with other USDA 

agencies and other Federal agencies, including the Food and Drug Administration (FDA), the 

Environmental Protection Agency, and the CDC, to support an integrated farm-to-table approach 

to food safety.

Initiatives to modernize operations and inspection systems continued with FSIS working to amend 

the egg products inspection regulations by requiring official plants that process egg products to 

develop and implement Hazard Analysis and Critical Control Point Systems and Sanitation 

Standard Operating Procedures consistent with the meat and poultry regulations. FSIS continues 

to move forward with plans to modernize swine slaughter inspections in an effort to increase the 

efficiency and effectiveness of the inspection process and to allow for the rapid adoption of new 

food safety technologies in pork slaughter. Additionally, more poultry establishments opted-in to 

the New Poultry Inspection System (NPIS). NPIS allows food safety inspectors to better verify 

that establishments maintain effective food safety systems by increasing food safety and sanitation 

verification tasks.

FSIS continues to improve the public health effectiveness of its testing programs through new and 

expanded sampling of regulated products in an effort to reduce foodborne illness. FSIS enhanced 

its use of whole genome sequencing in 2017, which allows the agency to accurately identify and 

respond to outbreaks, enrich collaborations with other Federal and State agencies and conduct 

efficient illness investigations back to the source. 

FSIS continues to strengthen coordination of Federal foodborne outbreak response responsibilities 

with the CDC and FDA, and thereby bolstered its approach to preventing illnesses and deaths 

associated with multistate foodborne outbreaks by stopping outbreaks rapidly, and by preventing 

future foodborne outbreaks. 

Pursuant to the Secretary’s September, 2017 announcement, the U.S. Codex Office is now under 

the USDA’s Trade and Foreign Agricultural Affairs Mission Area. However, the Undersecretary 

for Food Safety will continue to chair the U.S. Codex Policy Committee, which is an interagency 

partnership that engages stakeholders in the development of international governmental and nongovernmental food standards. 
48 2019 USDA BUDGETSUMMARY

FOOD SAFETY INSPECTION SERVICE

Table FdS-1. FSIS Budget Authority (millions of dollars)

Item 2017

Actual

2018

Estimate

2019

Budget

Discretionary:

Federal Food Safety and Inspection ........................................... $916 $910 $920

State Food Safety and Inspection ............................................... 61 61 61

International Food Safety and Inspection................................... 16 16 16

Public Health Data Communication Infrastructure System ....... 35 34 34

Codex Alimentarius.................................................................... 4 - -

Total, Discretionary Programs ...................................................... 1,032 1,021 1,032

Mandatory:

Trust Funds (Voluntary Inspection Services)............................. 26 11 11

User Fees (Overtime/Holiday Inspection Services) ................... 221 225 229

Total, Mandatory Programs .......................................................... 247 236 240

Total, Current Law........................................................................ 1,279 1,257 1,272

Proposed Legislation a ................................................................ - - -

Total, FSIS .................................................................................... 1,279 1,257 1,272 

a The Budget includes a proposal for changes to certain programs above. No budget authority impact is estimated 

for 2019.

To accomplish its functions, FSIS employees are located at over 6,400 slaughtering and processing 

establishments and import houses, and other Federally-regulated facilities. Headquarters personnel 

are responsible for overseeing administration of the program and ensuring that scientific and 

technological developments are incorporated into inspection procedures. 

The Budget proposes discretionary funding of approximately $1 billion. Funding for the Codex 

Alimentarius Office is requested separately to reflect the transfer from Food Safety to the Trade 

and Foreign Agricultural Affairs Mission Area. Finally, the Budget proposes to return the 

Siluriformes inspection program to the FDA. 

FSIS is instrumental in helping reduce the level of foodborne illness by targeting common and 

dangerous pathogens, thereby reducing their prevalence in finished food product. In addition to its 

work ensuring safe and wholesome products are available to the consumer, FSIS also conducts 

public education campaigns to inform consumers about safe food handling methods to decrease 

the likelihood of foodborne illness from products that were improperly stored, handled, and/or 

prepared. With the funding requested, FSIS aims to achieve the following performance measures:

Table FdS-2. KPM – Food Safety (Percent of Establishments)

Key Performance Measure Baseline

2018 

Target

2019 

Target

Establishments that Meet Pathogen Reduction Performance Standards 77.2% 78.0% 81.0% 

Establishments Whose Non-compliance Rate Decreases 120 Days After 

Receiving an Early Warning Alert 72.7% 71.4% 72.0% 
FOOD SAFETY 49

User Fees and Trust Funds

FSIS estimatesit will collect $240 million in 2019 through existing user fee and trust fund activities 

for providing overtime, holiday, and voluntary inspection services.

Proposed Legislation 

FSIS is proposing a user fee to cover all domestic inspection, import re-inspection, and most of 

the central operations costs for Federal, State, and International inspection programs for meat, 

poultry, and egg products. The fee would not cover Federal functions such as investigation, 

enforcement, risk analysis, and emergency response. FSIS would implement this user fee 

beginning in 2020. 
50 2019 USDA BUDGETSUMMARY

NATURAL RESOURCES AND ENVIRONMENT

MISSION

The Natural Resources and Environment (NRE) mission area ensures the productive and 

sustainable use of our National Forest System (NFS) lands, contributes to the economic health of 

rural communities through use and access opportunities, and helps the nation mitigate wildfire 

risk. The mission area includes the Forest Service (FS). With the Administration’s ongoing focus 

on improving USDA’s efficiency and effectiveness, the Natural Resources Conservation Service 

has been realigned with the Farm Production and Conservation mission area. 

FOREST SERVICE

Table NRE-1. FS Budget Authority (millions of dollars)

Item 2017

Actual

2018

Estimate

2019

Budget

Discretionary:

Forest and Rangeland Research a ............................................... $308 $306 $261

State and Private Forestry b......................................................... 322 320 182

National Forest System:

Hazardous Fuels Reduction c ................................................... 390 387 390

Forest Products ........................................................................ 368 365 341

Law Enforcement Operations .................................................. 127 126 129

Recreation, Heritage and Wilderness....................................... 265 263 240

Other NFS Activities ............................................................... 754 749 619

Total, NFS............................................................................. 1,903 1,890 1,720

Wildland Fire Activities: a,b,c

Preparedness ............................................................................ 1,083 1,075 1,340

Suppression.............................................................................. 1,248 1,240 1,165

Total, Wildland Fire Activities ............................................. 2,331 2,315 2,505

Capital Improvement and Maintenance...................................... 364 362 95

Land Acquisition accounts ......................................................... 56 55 1

Other Appropriations.................................................................. 5 5 4

Total, On-going Discretionary Programs................................. 5,289 5,253 4,767

FLAME Fund ............................................................................. 342 342 -

Total, Discretionary Programs ...................................................... 5,631 5,595 4,767

Mandatory:

Permanent Appropriations.......................................................... 309 296 299

Trust Funds................................................................................. 136 115 106

Total, Mandatory Programs .......................................................... 445 411 405

Total, Current Law........................................................................ 6,076 6,006 5,172

Proposed Legislation d ................................................................ - - -101

Total, FS e...................................................................................... 6,076 6,006 5,071

a In 2019, funding for Fire Plan Research and Development is shifted from Wildland Fire Management to Forest 

and Rangeland Research. Amounts in FY 2017 and FY 2018 have been adjusted forcomparability. b In 2019, funding for National Fire Capacity (previously State Fire Assistance) and Rural Fire Capacity ( previously 

Volunteer Fire Assistance) is shifted from Wildland Fire Management to State and Private Forestry. Amounts in 

FY 2017 and FY 2018 have been adjusted for comparability.
NATURAL RESOURCES AND ENVIRONMENT 51

c In 2019, funding for Hazardous Fuels Reduction is shifted from Wildland Fire Management to National Forest 

System. Amounts in FY 2017 and FY 2018 have been adjusted for comparability. d The 2019 Budget includes proposals for changes to certain programs above. e Total, FS does not include $94 million in unobligated balances proposed to be cancelled in 2019.

FS is contributing to the economic health of rural communities through use and access 

opportunities, such as outdoor recreational opportunities and other land uses like energy and 

communication infrastructure. This is accomplished through a variety of programs aimed at 

preserving and restoring our public lands. Investments in infrastructure, restoration, energy 

development, and recreation support jobs that generate local economic activity.

The risk of uncharacteristically severe wildfires is rising, but FS is mitigating the risk, and 

protecting public safety, property, and natural resources. FS also has strong capacity and 

internationally recognized expertise in managing and suppressing wildfires alongside a robust 

network of Federal, Tribal, State, and local partners. The agency works to control fires in a safe, 

efficient, cost-effective, and coordinated manner; and protect our forests and watersheds, which 

help forests maintain their capacity to deliver benefits such as clean water, wildlife and fish habitat, 

recreational opportunities, and forest products. 

Forest Management 

45%

Capital Improvement 

& Maintenance

2%

Total = $4.8 Billion

Wildland Fire

Management 

53%

Figure NRE-1. FS Discretionary Budget Authority

Forest and Rangeland Research

For 2019, $261 million is proposed for Forest and Rangeland Research to focus on research that 

supports the management of NFS lands and the agency’s wildland fire suppression efforts. The 

Budget continues to support research products that inform policy and land-management decisions, 

and information through technology transfers designed to provide economic, health, and 

environmental benefits to the American public. R&D funding will be prioritized for activitiesthat 

have the highest impact in meeting agency goals and objectives, including forest restoration, insect 

and disease management, wildland fire, and water quality and quantity. To streamline fire research, 

in 2019 the National Fire Plan program is shifted from the WFM account to R&D, and funding 

will continue to support research on fire-affected landscapes to sustain forest health, reduce the 
52 2019 USDA BUDGETSUMMARY

risk of damaging wildland fires, and ensure firefighter safety. The Budget provides $75 million for 

Forest Inventory and Analysis to strengthen the collection, coordination, and assessment of field 

inventory data, and create a robust landscape scale inventory and analysis effort in all 50 States 

and U.S. Territories.

State and Private Forestry (S&PF) 

For 2019, $182 million is proposed for S&PF programs, including about $85.9 million to address 

the greatest emerging threats to forest health on and off NFS land. Through S&PF programs, FS 

addresses forest health concerns across more than 750 million acres of Federal, State, and private 

lands, creating a more connected forest landscape. The Budget continues to support the 

productivity and health of private working lands through the $19.5 million commitment to the 

Working Forest Lands program (previously Forest Stewardship). This program assists nonindustrial private forest landowners to enhance and sustain their forest resources, and maintain 

local forest product markets. The Budget proposes to shift the funding of National Fire Capacity 

(previously State Fire Assistance) ($65.9 million) and Rural Fire Capacity (previously Volunteer 

Fire Assistance) ($11 million) from WFM. These two programs will continue to build state and 

local fire capacity to protect non-federal forestlands threatened by wildfire.

National Forest System (NFS) 

The Forest Service manages over 193 million acres of public land in 44 States and Puerto Rico, 

collectively known as the NFS. The Budget proposes to fund NFS at $1.7 billion, prioritizing 

programs designed to increase the health and resilience of the national forests and grasslands, while 

also meeting the multiple use requirements for the resources on our Nation's forests and grasslands. 

The Budget ensuresthat our national forests and grasslands continue to provide clean air and water, 

forest and rangeland products, mineral and energy resources, quality habitat for fish and wildlife, 

recreational opportunities, and jobs. 

Hazardous Fuels, Forest Products, Vegetation and Watershed, and Wildlife and Fisheries programs 

work together efficiently to restore healthy, resilient landscapes and create safer communities. 

Forest Products generate over 43,000 jobs and about $3.2 billion of gross domestic product 

annually. With $390 million dedicated to Hazardous Fuels Reduction (a $2.6 million increase over 

FY 2018), and $341 million for Forest Products, among other programs, the agency will 

accomplish a timber output of 3.7 billion board feet, restore 2.1 million acres, treat 3.4 million 

acres for hazardous fuels, and improve 14 watersheds.

The Budget proposes to eliminate the Integrated Resources Restoration pilot in Regions 1 

(Northern), 3 (Southwestern), and 4 (Intermountain). The Budget requests that funding for the 

Hazardous Fuels program be moved from the Wildland Fire Management account to the NFS 

program, as the majority of Hazardous Fuels work takes place on NFS or adjacent lands. 

The Budget also continues to support use and access opportunities on NFS land. Acknowledging 

that outdoor recreation supports about 143,000 full and part-time jobs, and contributes close to 

$10.3 billion to the Gross Domestic Product, the Budget supports recreation at $240 million. The 

agency will prioritize permitting for outfitters and guides, maintaining and growing strong 

collaborations with partners and volunteer groups, and working to address the recreational needs 

of today’s public, who want year-round activities on NFS lands. 

The agency will also continue to improve its permitting processes to promote other critical land 

uses on NFS lands such as energy, utility, and communication infrastructure, as these uses provide 

approximately $30 billion annually to the Gross Domestic Product, support 120,000 private sector
NATURAL RESOURCES AND ENVIRONMENT 53

jobs, and generate approximately $65 million annually to the U.S. Treasury. Through these efforts, 

the agency will continue to improve public access to NFS lands for local communities which 

depend on these lands for jobs and economic vitality.

The Budget increases support for Law Enforcement and Investigations by over $3 million, to $129 

million. The proposed funding increase will enable law enforcement officers to scale up marijuana 

eradication operations and marijuana grow site clean-up and reclamation. This funding is critical, 

as this program is the lead federal organization fighting marijuana operations, combating 80 

percent of marijuana growth on Federal public lands. 

Table NRE-2. KPM – Forest Management

Key Performance Measure Baseline

2018 

Target

2019 

Target

Volume of timber sold (billion board feet) 2.92 3.40 3.70 

Percent of NFS watersheds in a functioning condition 53 53 52 

Table NRE-3. KPM – National Forest Customer Satisfaction (percent of total customers)

Key Performance Measure Baseline

2018 

Target

2019 

Target

Satisfied with recreation facilities, services, and settings 95 95 95 

Table NRE-4. KPM – Mitigate Wildfire Risk (millions of acres, annually)

Key Performance Measure Baseline

2018 

Target

2019 

Target

Treated to reduce or maintain fuel conditions (NFS and non-federal lands) 2.78 3.0 3.4 

Final treatment effectively mitigated wildfire risk (NFS lands) 0.74 1.1 1.1 

Wildland Fire Management (WFM) 

More than 46 million homes, or 40 percent of the Nation’s housing units, are located in fire-prone 

Wildland Urban Interface (WUI) areas, and this trend is expected to keep growing. During an 

average year, more than 73,000 wildfires burn about 7 million acres nationally. The demand for 

effective wildland fire management grows more critical as the length of fire season grows to be 

almost year-round in some areas, the WUI continues to expand, and fuel loads are at high levels.

Through WFM, FS protects life, property and natural resources on NFS lands, other federal lands, 

and an additional 20 million acres of non-federal lands under agreements. The Budget proposes 

$2.5 billion for Wildland Fire Management activities. The Budget supports Preparedness at about 

$1.3 billion to ensure readiness capability and program leadership necessary for appropriate, risk 

informed, and effective operations. The Budget also supports the base 8 shift of funding for 

firefighters. Base-8 salaries were shifted from Suppression Operations to the Preparedness 

Program starting in FY 2018 to ensure all firefighter base time costs are tracked annually. The 

Budget proposes about $1.17 billion for Suppression, which fully funds the 10-year average for 

suppression operations. The Budget also proposes to amend the Balanced Budget and Emergency 

Deficit Control Act to establish a separate annual cap adjustment for wildfire suppression 

operations, similar to how unanticipated funding needs for other natural disasters are addressed. 
54 2019 USDA BUDGETSUMMARY

The Budget also supports aviation at $228 million total. The Budget provides funding for an 

aviation fleet that meets wildland fire response requirements, including up to 18 air tankers and 

108 helicopters. 2018 will mark the last year the agency will support the HC-130H program that 

was authorized within the 2014 National Defense Authorization Act. The agency has determined 

the HC-130H program is no longer necessary because private industry is capable of fulfilling the 

agency’s required large air tanker needs. The agency will seek the support of the appropriate 

Congressional committees to terminate the agency-owned HC-130H program in 2019. 

The Budget proposes to shift the funding of National Fire Capacity (previously State Fire 

Assistance) ($65.9 million) and Rural Fire Capacity (previously Volunteer Fire Assistance) ($11 

million) from WFM to State and Private Forestry. These two programs will continue to build state 

and local fire capacity to protect non-federal forestlands threatened by wildfire. In addition, in 

2019 the National Fire Capacity program is shifted to the Forest and Rangeland Research account, 

and funding will continue to support research on fire-affected landscapes to sustain forest health, 

reduce the risk of damaging wildland fires, and ensure firefighter safety. 

Capital Improvement and Maintenance (CIM)

The Forest Service provides public access to national forests for recreation; facilities for fire and 

forest research; and infrastructure for businesses and industries. CIM funds construction and 

maintenance of infrastructure on the NFS, including buildings, recreation sites, facilities, roads, 

and trails. FS currently manages over 372,000 miles of roads, 157,000 miles of trails, 6,200 

bridges, 460 agency owned dams, 39,000 buildings, 27,000 recreation sites, and 9,543 

water/wastewater systems. The Roads program ensures the productive and sustainable use of NFS 

lands for many purposes, including hunting, fishing, and hiking, use by first responders in 

emergencies, timber harvests, mining, and access to rural communities. For 2019, total funding for 

this work is proposed at about $95 million.

Land Acquisition

The Budget proposes $1 million for the acquisition and donation of lands, waters, and related 

interests within the NFS to further agency goals for restoration, outdoor recreation and public 

access, habitat for wildlife, and to protect water quality. While the agency will continue to operate 

under several specific land acquisition authorities, the main Land Acquisition fund is proposed for 

elimination because the agency will focus on the maintenance of existing NFS lands in FY 2019. 

Proposed Legislation 

The Budget supports a legislative solution to address the way FS funds wildland firefighting so 

that the agency is not routinely borrowing money from prevention programs to combat ongoing 

wildfires. Currently, the Suppression program is funded at a growing, rolling ten-year average of 

discretionary appropriations, but the Budget supports a solution that treats wildfires the same as 

other disasters, which are covered by emergency funds. 

The Budget requests the reauthorization of the authority to collect recreation revenue for use in 

providing quality recreation facilities and supporting land management operations (Federal Lands 

Recreation Enhancement Act). The Budget also seeks the reauthorization of the expired authority 

to convey administrative sites that the agency no longer needs while retaining the sales proceeds 

to maintain infrastructure safety and customer service (Forest Service Facility Realignment and 

Enhancement Act).
MARKETING AND REGULATORY PROGRAMS 55

MARKETING AND REGULATORY PROGRAMS

MISSION

The Marketing and Regulatory Programs (MRP) mission is to facilitate and expand the domestic 

and international marketing of U.S. agricultural products, to help protect the agricultural sector 

from animal and plant health threats, and to ensure humane care and treatment of regulated 

animals. These programs provide the basic infrastructure to improve agricultural market 

competitiveness for the overall benefit of consumers and producers of American agriculture. Due 

to the assistance provided by MRP and other mission areas in USDA, U.S. agricultural exports 

totaled $140.5 billion in FY 2017, the third highest level on record. 

To meet demand for American grain, and to ensure consistent grain quality, MRP is providing 

service at export facilities 24 hours a day. MRP also assists producers in management and domestic 

marketing by providing market trend analysis and business and marketing tools. MRP also helps 

increase the competitiveness of the agricultural sector by working to protect the Nation’s 

agriculture from pests and diseases, thereby increasing the efficiency of production. 

Consistent with the Department’s reorganization announced on September 7, 2017, the 

presentation that follows shows the activities carried out by the former Grain Inspection, Packers 

and Stockyards Administration (GIPSA) under the Agricultural Marketing Service (AMS). 

Similarly, the U.S. Warehouse Act work and the International Procurement work previously 

carried out under the Farm Service Agency is presented under AMS. 

Table MRP-1. APHIS Budget Authority (millions of dollars)

Item 2017

Actual

2018

Estimate

2019

Budget

Discretionary:

Safeguarding and Emergency Preparedness/Response:

Animal Health:

Animal Health Technical Services........................................ $38 $38 $30

Aquatic Animal Health ......................................................... 2 2 -

Avian Health ......................................................................... 55 55 34

Cattle Health ......................................................................... 92 91 86

Equine, Cervid and Small Ruminant Health ......................... 20 20 17

National Veterinary Stockpile............................................... 6 6 4

Swine Health ......................................................................... 25 25 20

Veterinary Biologics ............................................................. 16 16 16

Veterinary Diagnostics.......................................................... 37 36 31

National Bio- and Agro-defense Facility .............................. 3 3 11

Zoonotic Disease Management ............................................. 16 16 16

Total, Animal Health .......................................................... 310 308 265

Plant Health:

Agricultural Quarantine Inspection (Appropriated) a ............ 29 29 -

Cotton Pests........................................................................... 12 11 7

Field Crop and Rangeland Ecosystems Pests........................ 9 9 8

Pest Detection ....................................................................... 27 27 22

Plant Protection Methods Development................................ 21 21 16

Specialty Crop Pests b............................................................ 172 171 139
56 2019 USDA BUDGETSUMMARY

Item 2017

Actual

2018

Estimate

2019

Budget

Tree and Wood Pests............................................................. 54 54 25

Total, Plant Health.............................................................. 324 322 217

Wildlife Services:

Wildlife Damage Management ............................................. 103 103 46

Wildlife Services Methods Development ............................. 19 19 19

Total, Wildlife Services...................................................... 122 122 65

Regulatory Services:

Animal and Plant Health Regulatory Enforcement............... 16 16 16

Biotechnology Regulatory Services ...................................... 19 19 19

Total, Regulatory Services ................................................. 35 35 35

Emergency Management:

Contingency Fund ................................................................. 0 0 0

Emergency Preparedness & Response .................................. 41 41 41

Total, Emergency Management.......................................... 41 41 41

Total, Safeguarding and Emergency Preparedness .................... 832 828 624

Safe Trade and International Technical Assistance:

Agriculture Import/Export ....................................................... 16 15 15

Overseas Technical & Trade Operations ................................. 22 22 22

Total, Safe Trade and International Technical Assistance .... 38 37 37

Animal Welfare .......................................................................... 30 29 29

Agency-Wide Activities (including GSA Rent/DHS Security) . 52 52 49

Total, Salaries and Expenses ................................................... 952 946 739

Buildings and Facilities c ............................................................ 50 50 3

Total, Non-Emergency Programs ............................................ 1,002 996 742

Emergency Funding (CCC) and other transfers d ....................... 24 - -

Total, Discretionary Programs ...................................................... 1,026 996 742

Mandatory:

Agricultural Quarantine Inspection (AQI) Fees e ....................... 226 227 226

Trust Funds and User Fees ......................................................... 10 9 9

Farm Bill: Plant Pest and Disease Mgmt. and Disaster Prev...... 58 70 75

Total, Mandatory Programs .......................................................... 294 306 310

Total, Current Law........................................................................ 1,320 1,302 1,052

Proposed Legislation a ................................................................ - - -52

Total, APHIS................................................................................. 1,320 1,302 1,000

a The Budget includes proposals for changes to certain programs above. Amount shown reflects estimated 

collections. b Amounts for 2017 and 2018 include $5.5 million provided through General Provision 757 of the Consolidated 

Appropriations Act, 2017. For 2019, the budget proposes to cover this activity through user fees. c Amounts for 2017 and 2018 include $47 million provided through General Provision 743 of the Consolidated 

Appropriations Act, 2017. d Reflects 2017 emergency transfers from the Commodity Credit Corporation (CCC) to address bovine tuberculosis 

findings throughout the United States. e Total adjusted collections are $761 million in 2017, $768 million in 2018, and $765 million in 2019. Of the total,

$535 million, $539 million and $539 million are transferred to the Department of Homeland Security in 2017, 

2018 and 2019 respectively.
MARKETING AND REGULATORY PROGRAMS 57

APHIS works cooperatively with State and local agencies, private groups, and foreign 

governments to protect the Nation’s agriculture. The Budget includes discretionary funding of 

$742 million, of which $739 million is for programmatic operations and $3 million for the 

Buildings and Facilities account.

Table MRP-2. KPM – Federal Emergency Response

Key Performance Measure Baseline

2018 

Target

2019 

Target

Maximum number of hours to mobilize resources once it is determined a 

Federal emergency response is needed to manage an agricultural outbreak 24 24 24 

Safeguarding and Emergency Preparedness/Response

The Budget includes discretionary appropriations of $624 million for safeguarding and emergency 

preparedness and response. These safeguarding and emergency programs, specifically for animal 

health and specialty crops, protect $193 billion of livestock, poultry, and specialty crops on an 

annual basis.

To combat any sudden, urgent and unforeseen pest and disease outbreaks, the Secretary retains 

authority to transfer funds from the CCC or other USDA accounts. The Budget provides technical 

and financial support to help control or eradicate a variety of animal and plant health threats:

Animal Health

The Budget includes a total of $265 million for Animal Health, which includes an increase to 

enable the transfer of science programs from Plum Island Animal Disease Center to the National 

Bio and Agro-defense Facility. The Budget proposes decreases to the Federal funding for all 

livestock and poultry health efforts as well as disease traceability efforts. The Budget also proposes 

to eliminate Federal contributions for the Cervid Health Program, as well as the Federal role in 

Aquatic Animal Health activities. In collaboration with industry and States, APHIS has established 

the framework for managing animal health needs in the aquaculture industry. This framework can 

be used by industry to establish voluntary programs, and by State and local governments to 

maintain or enhance aquatic animal health. APHIS will continue working with States and other 

stakeholders to leverage resources in addressing the highest priority animal health issues.

Plant Health

The Budget includes $217 million for Plant Health. The Budget proposes a new discretionary user 

fee to fund domestic Agricultural Quarantine and Inspection (AQI) activities in a similar manner 

as AQI activities conducted for cargo and passengers originating from outside of the U.S. The 

Budget proposes decreases to the Federal share of funding for specific plant pest and disease 

programs and plant survey efforts. APHIS will continue working with States and other 

stakeholders to leverage resources in addressing the highest priority plant health issues. The 

Budget also proposes reductions for internal plant methods development of tools and technologies. 

The Agency will adjust its rate at which it develops trapping, identification, and survey 

technologies while maintaining focus on tools to manage or eradicate high priority invasive pest 

threats.

Wildlife Services

The Budget includes a total of $65 million for Wildlife Services. The Budget proposes to reduce 

the Federal share of funding for programs that provide localized benefits. Under the Budget, the 

Wildlife Damage Management program will continue to provide education and technical 
58 2019 USDA BUDGETSUMMARY

assistance; however, cooperators requesting direct control assistance will need to cover the 

operational program costs. In addition, while the national rabies management and feral swine 

programs will maintain core activities with Federal funding, cooperators will need to cover costs 

associated with enhanced activities or local projects outside of these programs’ core activities.

Regulatory Services

The Budget includes $35 million for Regulatory Services, which will maintain current services. 

This includes funding for the Animal and Plant Health Regulatory Enforcement program, which 

promotes the integrity of APHIS programs by providing effective investigative and enforcement 

services. This also funds Biotechnology Regulatory Services activities at the current level. In 2017, 

USDA completed three petitions meeting the goal for determinations of nonregulated status.

Emergency Management

The Budget includes $41 million for Emergency Management. This continues the enhanced 

emergency preparedness efforts initiated following the Avian Influenza outbreak of 2015. 

Safe Trade and International Technical Assistance

The Budget maintains the level of funding for Safe Trade and International Technical Assistance 

activities at $37 million. APHIS will continue to support activities to facilitate safe U.S. 

agricultural trade. In 2016, APHIS efforts to eliminate trade barriers and to ensure that trade 

decisions are based on science resulted in the retention, opening or expansion of markets worth 

$2.6 billion for U.S. agricultural producers. 

Animal Welfare 

The Budget maintains the level of funding for Animal Welfare activities at $29 million. APHIS 

will continue to support activities related to the protection of animal species covered under the 

Animal Welfare Act and the Horse Protection Act.

Buildings and Facilities

The Budget includes $3 million in funding for general repairs and maintenance. 

User Fees for Agricultural Quarantine and Inspection

In addition to discretionary funding, APHIS currently collects mandatory user fees to cover costs 

related to agricultural quarantine and inspection activities that occur at ports of entry. A portion of 

these collections are provided to the Department of Homeland Security’s Customs and Border 

Protection (CBP) to conduct front line inspections at points of entry. With retained funding, APHIS 

supports international trade by assessing the plant and animal health risks associated with such 

trade. APHIS also develops regulations to protect agricultural health; inspects and quarantines 

imported plant propagative materials; trains agricultural inspectors and detector dog teams; and 

provides the scientific support necessary to carry out these activities as well as those carried out 

by CBP.

Proposed Legislation 

The Budget proposes to authorize the collection of user fees for certain Animal Welfare, 

Veterinary Biologics, and for Biotechnology Regulatory Services activities. The proposed user 

fees will place a portion of the costs of providing these services on the recipient rather than the

U.S. taxpayer. The Budget proposes domestic Agricultural Quarantine and Inspection activities be 

funded in a manner similar to activities conducted for cargo and passengers originating from 

outside of the U.S.
MARKETING AND REGULATORY PROGRAMS 59

AGRICULTURAL MARKETING SERVICE

Table MRP-3. AMS Budget Authority (millions of dollars)

Item 2017

Actual

2018

Estimate

2019

Budget

Discretionary:

Marketing Services:

Market News............................................................................ $34 $33 $29

Egg Surveillance and Standardization ..................................... 8 8 7

Market Protection and Promotion............................................ 32 32 34

National Bioengineered Food Disclosure Standard................. 1 1 1

Transportation and Market Development ................................ 10 11 7

Packers and Stockyards ........................................................... 23 23 23

Grain Regulatory a.................................................................... 20 20 -

US Warehouse Act .................................................................. 7 5 5

International Food Procurement Program................................ 4 13 13

Total, Marketing Services ..................................................... 139 146 119

Payments to States and Possessions ........................................... 1 1 1

Total, Discretionary Programs ...................................................... 140 147 120

Mandatory:

Funds for Strengthening Markets, Income, and Supply 

(Section 32):

Commodity Program Expenses ............................................... 786 784 733

Section 32 Administrative Funds:

Marketing Orders and Agreements ....................................... 21 21 20

Commodity Purchase Services.............................................. 35 35 36

Total, Section 32 Administrative Funds ............................. 56 56 56

Total, Section 32 Funds ........................................................... 842 840 789

User Fees:

Perishable Agricultural Commodities Act ............................... 12 11 11

Commodity Grading Services.................................................. 158 160 160

Inspection and Weighing Services........................................... 52 55 80

Warehouse Examinations ........................................................ - - 4

Total, User Fee Funded Programs......................................... 222 226 255

Trust Funds:

Wool Research, Development and Promotion......................... 2 2 2

Farm Bill:

Specialty Crop Block Grants ................................................... 67 79 85

Farmers Market and Local Food Promotion Program ............. 28 28 -

Total, Farm Bill Programs..................................................... 95 107 85

Total, Mandatory Programs .......................................................... 1,161 1,175 1,131

Total, Current Law........................................................................ 1,301 1,322 1,251

Proposed Legislation .................................................................. - - -43

Total, AMS ................................................................................... 1,301 1,322 1,208

a For 2019, the Budget proposes to cover this activity through user fees.
60 2019 USDA BUDGETSUMMARY

AMS’ mission is to facilitate the competitive and efficient marketing of agricultural products in 

domestic and international markets, while ensuring fair trading practices. AMS programs aid 

producers in meeting the changing demands of consumers, and domestic and international 

marketing practices. The Budget proposes discretionary funding of $119 million. 

AMS administers a variety of programs that enhance the marketing and distribution of agricultural 

products. Activities include the collection, analysis, and dissemination of market information; 

surveillance of shell egg handling operations; development of commodity grade standards; 

protection of producers from unfair marketing practices; statistical sampling and analysis of 

commodities for pesticide residues; development and enforcement of organic standards; and 

research and technical assistance aimed at improving efficiency of food marketing and distribution. 

USDA has recently undertaken some reorganizations involving AMS to streamline inspection, 

grading, and procurement programs. These changes will improve the integrity and efficiency of 

customer service delivery. Moving the Packers and Stockyards Program, the U.S. Warehouse Act 

appropriated activities, and the Warehouse Examinations to the AMS extends the existing fair 

market practices offered by the Agency. Consolidating commodity food procurement activities by 

joining international procurement from the FSA with AMS’s domestic procurement programs 

creates efficiencies in USDA's acquisition of commodities. Merging the Grain Regulatory 

Program, and the Inspection and Weighing Services activities into AMS allows customers to find 

grading and inspection services in one place. The merger and program transfers will create a 

unified USDA presence for those marketing agricultural commodities and involved in the 

procurement for USDA nutrition assistance programs.

Marketing Services

Market News 

The Budget proposes $29 million for Market News to support data collection and reporting of 

commodity information. This work provides timely, accurate, and unbiased price, quality, and 

sales information on cotton, dairy, fruits, vegetables, specialty crops, livestock, grain, and poultry, 

including organic commodities.

Egg Surveillance and Standardization 

The Budget funds the Egg Surveillance and Standardization at $7 million. The Shell Egg 

Surveillance Program inspects registered shell egg facilities and monitors the disposition of 

restricted eggs to limit the number of restricted eggs in consumer channels. The program prevents 

eggs not meeting minimum U.S. standards from entering the consumer marketplace.

Market Protection and Promotion-Federal Seed Act Program 

The Budget provides $2 million for the Federal Seed Act Program. This program promotes fair 

competition in the seed trade, by among other requirements, ensuring seed is accurately labeled.

Market Protection and Promotion-Country of Origin Labeling 

The Budget provides $4 million for the Country of Origin Labeling program. The program requires 

retailers to notify their customers of the country of origin of covered commodities, and that the 

method of production for fish and shellfish be noted at the final point of sale.

Market Protection and Promotion-Pesticide Data Program

The Budget provides $15 million for the Pesticide Data Program, which is the main supplier of 

data regarding actual levels of pesticide residues on commodities. The program works 

collaboratively with the Environmental Protection Agency and the Centers for Disease Control 
MARKETING AND REGULATORY PROGRAMS 61

and Prevention to target residue data collection related to high risk commodities and vulnerable 

populations. 

Market Protection and Promotion-National Organic Program 

The Budget provides $12 million for the National Organic Program, which works to meet 

consumer demand for organically-produced goods by supporting the development, maintenance, 

and enforcement of national standards governing the production and handling of organic 

agricultural products. Improved enforcement and traceability will be implemented through 

technology investments and improvements using a $3 million budget increase. 

National Bioengineered Food Disclosure Standard 

The Budget requests $1 million for the National Bioengineered Food Disclosure Standard. Public 

Law 114-216 requires USDA to put in place a national mandatory system for disclosing the 

presence of bioengineered material in foods and ingredients. The requirements of the disclosure 

are being developed through rulemaking. 

Transportation and Market Development 

The Budget requests $7 million for Transportation and Market Development, which conducts 

research and outreach related to grain shipping and supply chains. The program connects 

agricultural producers with high value market opportunities through its national market directories.

Packers and Stockyards 

The Budget provides $23 million for the Packers and Stockyards program, which regulates and 

monitors the activities of livestock, meat, and poultry market participants to support fair practices. 

The program also reviews the financial records of these entities.

Grain Regulatory 

The Grain Regulatory program, commonly referred to as the Federal Grain Inspection Service, 

establishes the official U.S. standards and quality assessment methods for grain and related 

products, and regulates handling practices to ensure compliance with the United States Grain 

Standards Act (USGSA) and the Agricultural Marketing Act of 1946. Inspection and weighing 

services are currently user-fee funded and are described in the User Fee section. Legislation is 

included to fund additional activities through user fees. 

U.S. Warehouse Act

The United States Warehouse Act (USWA) authorizes the licensing of operators who store 

agricultural products and a separate licensing for qualified persons to sample, inspect, weigh, and 

grade agricultural products. The USWA authorizes the application of user fees to cover the costs 

of administering the Act, including unannounced warehouse examinations to encourage 

compliance. Warehouses engaged in export food aid operations are required to be licensed. These 

activities are funded by a combination of user fee collections and appropriated funds. 

International Food Procurement

The Budget requests $13 million for International Food Procurement programs. Commodities such 

as grains, legumes/pulses, and oil products are acquired for overseas use.

Payments to States and Possessions

The Budget requests $1 million for the program Federal-State Marketing Improvement Program 

(FSMIP). Under FSMIP, AMS provides matching funds to State Departments of Agriculture for 
62 2019 USDA BUDGETSUMMARY

projects aimed at improving marketing efficiency, reducing marketing costs for producers, and 

lowering food costs for consumers. 

Section 32 Funds

Section 32 of the Act of August 24, 1935, authorizes the appropriation for each fiscal year of an 

amount equal to 30 percent of the gross receipts from duties collected under customs laws of the 

United States during the preceding calendar year. These funds are used to encourage domestic 

consumption of perishable commodities that are not eligible for price support from USDA, and 

encourage the export of agricultural products, including: purchases of commodities and removal 

of surplus commodities from the marketplace for distribution to Federal nutrition assistance 

programs such as the National School Lunch Program and diversion programs that bring 

production in line with demand. Section 32 funds are also used to finance the administrative costs 

associated with the purchase of commodities and developing the specifications used for food 

procurement throughout the Federal government. The Budget requests $36 million for 

administration of commodity purchasing.

Marketing Orders and Agreements help stabilize market prices and the supply of milk and certain 

specialty crops. The Orders are administered locally by marketing order committees and market 

administrators. Local activities are funded through assessments on regulated handlers. To finance 

Federal oversight activities for marketing orders and agreements at the national level in FY 2019, 

$20 million will be used. 

User Fee Programs

AMS operates select programs through license fees and user fees. The Commodity Grading 

Services program provides voluntary commodity grading and classing services for dairy products, 

fresh and processed fruits and vegetables, meat and meat products, poultry, eggs, tobacco, and 

cotton. AMS also offers certification services to verify contract specifications on quantity and 

quality, acceptance and condition inspection services for all agricultural commodities upon 

request, and export certification services for a number of commodities. AMS’ audit verification 

services review production and quality control systems, and verify industry marketing claims. In 

addition, AMS enforces the Perishable Agricultural Commodities Act which prohibits unfair and 

fraudulent practices in the marketing of perishable agricultural commodities by regulating 

shippers, distributors, and retailers. Full and prompt payment for fresh fruits and vegetables is a 

key objective of the program. The Grain Inspection and Weighing user fees provide for the 

mandatory inspection and weighing of grain at export ports and the inspection and weighing of 

grain at domestic locations. AMS is required to conduct or delegate inspection and weighing, and 

to supervise such activities. The Warehouse Examinations license fee provides for unannounced 

examinations to encourage compliance with licensing terms under the USWA.

Proposed Legislation 

The Budget proposes the authority to collect a fee from the Marketing Orders and Agreements 

programs to recover the full cost of the agency’s oversight of these programs. The industries that 

substantially benefit from Marketing Orders and Agreements should pay for the oversight of these 

programs, with the collections being provided to the U.S. Treasury. The Budget proposes the 

authority to collect a license fee for Packers and Stockyards. Collections from these two fees will 

provide receipts to the U.S. Treasury. The Budget also proposes the authority to collect a 

discretionary user fee for Grain Regulatory programs, to allow the full cost of grain programs to 

be paid by the industry beneficiaries.
RESEARCH, EDUCATION,AND ECONOMICS 63

RESEARCH, EDUCATION, AND ECONOMICS

MISSION

USDA supports a variety of research topics to address complex challenges that require multifaceted approaches through in-house research and in partnership with land-grant institutions and 

others. USDA brings together expertise from animal science, veterinary medicine, food safety, 

nutrition, wildlife, plant science, economics, ecology, biotechnology, and other agricultural and 

health disciplines to develop innovative approaches to today’s challenges. 

REE responsibilities are carried out by four agencies: (1) the Agricultural Research Service (ARS) 

conducts intramural research in natural and biological sciences; (2) the National Institute of Food 

and Agriculture (NIFA) partners with land-grant and non-land grant colleges and universities in 

carrying out extramural research, higher education, and extension activities; (3) the Economic 

Research Service (ERS) performs intramural economic and social science research; and (4) the 

National Agricultural Statistics Service (NASS) conducts the Census of Agriculture and provides 

the official, current statistics on agricultural production and indicators for the economic and 

environmental welfare of the farm sector. REE made important investments in FY 2017 to advance

U.S. agriculture. ARS produced breakthroughs in rubber production from guayule, a southwestern 

shrub, allowing passenger tires to be produced with 100-percent guayule rubber and opening the 

door for a U.S.-based natural rubber production industry. NIFA-supported researchers identified a 

gene that confers resistance to new virulent races of UG99, a cause of stem rust that threats global 

wheat production. NASS used, for the first time, a satellite with cloud penetrating capability to 

provide real-time assessments of areas impacted by Hurricanes Harvey, Irma, and Maria. ERS 

reported that a 10-percent increase in demand for U.S. agricultural exports would increase total 

employment in all sectors of the U.S. economy by about 41,500 jobs, above and beyond the 

approximately 1.1 million jobs currently supported by U.S. agricultural exports. 

ERS 

2%

ARS

41% Total = $2.5 Billion

NIFA

51%

NASS 

6%

Figure REE-1. REE Discretionary Budget Authority
64 2019 USDA BUDGETSUMMARY

AGRICULTURAL RESEARCH SERVICE

ARS is the USDA’s chief scientific, in-house research agency. ARS conducts research to solve 

technical problems of broad scope and high national priority, and provides access to scientific 

information. The research covers a wide range of critical problems affecting American agriculture 

and the Nation as a whole, ranging from animal and crop protection and production to human 

nutrition, food safety, and natural resources conservation. ARS employs 6,500 employees and 

carries out 690 research projects at 90 research locations throughout the Nation and in several 

foreign countries. ARS includes the National Arboretum and the National Agricultural Library, 

the Nation's major information resource on food, agriculture, and natural resource sciences.

Table REE-1. ARS Budget Authority (millions of dollars)

Item 2017

Actual

2018

Estimate

2019

Budget

Discretionary:

Product Quality/Value Added .................................................... $102 $100 $65

Livestock Production.................................................................. 89 89 74

Crop Production ......................................................................... 226 224 205

Food Safety ................................................................................ 112 112 98

Livestock Protection................................................................... 94 93 89

Crop Protection .......................................................................... 198 196 155

Human Nutrition ........................................................................ 87 87 45

Environmental Stewardship ....................................................... 217 215 194

Total, Research Programs ........................................................ 1,125 1,116 925

National Agricultural Library..................................................... 24 24 22

Repair and Maintenance............................................................. 20 20 20

Buildings and Facilities .............................................................. 100 99 -

NBAF Operations and Maintenance .......................................... - - 42

NBAF Research Equipment ....................................................... - - 11

Total, Discretionary Programs ...................................................... 1,269 1,258 1,019

Mandatory:

Trust Funds................................................................................. 28 28 28

Total, ARS .................................................................................... 1,297 1,286 1,047 

The Budget includes discretionary funding of $1 billion for ARS research programs, with an 

emphasis on basic research and efforts to support the transfer of research and development 

products to industry to promote the Nation’s economic growth through innovation. The Budget 

includes the proposed termination of lower-priority and extramural research projects and closure 

of 20 laboratories, locations, or worksites. The Budget also includes an increase of $42 million to 

take ownership of the National Bio and Agro-Defense Facility, a state-of-the-art biocontainment 

facility for the study of foreign, emerging, and zoonotic animal diseases that pose a threat to United 

States animal agriculture and public health, which will replace the Plum Island Animal Disease 

Center.

Product Quality/Value Added

The Budget includes $65 million for this program. ARS has active research programs directed 

toward: (1) improving the efficiency and reducing the cost for the conversion of agricultural 

products into biobased products and biofuels; (2) developing new and improved products for 
RESEARCH, EDUCATION,AND ECONOMICS 65

domestic and foreign markets; and (3) providing higher quality, healthy foods that satisfy 

consumer needs in the United States and abroad. 

Livestock Production 

The Budget includes $74 million for this program. ARS’ livestock production program is directed 

toward: (1) safeguarding and utilizing animal genetic resources, associated genetic and genomic 

databases, and bioinformatic tools; (2) developing a basic understanding of the physiology of 

livestock and poultry; and (3) developing information, tools, and technologies that can be used to 

improve animal production systems. The research is heavily focused on the development and 

application of genomics technologies to increase the efficiency and product quality of beef, dairy, 

swine, poultry, aquaculture, and sheep systems.

Crop Production 

The Budget includes $205 million for this program. ARS’ crop production program focuses on 

developing and improving ways to reduce crop losses while protecting and ensuring a safe and 

affordable food supply. The research program concentrates on effective production strategies that 

are environmentally friendly, safe to consumers, and compatible with sustainable and profitable 

crop production systems. Research activities are directed at safeguarding and utilizing plant 

genetic resources and their associated genetic, genomic, and bioinformatic databases that facilitate 

selection of varieties and/or germplasm with significantly improved traits.

Food Safety 

The Budget includes $98 million for this program. Ensuring that the United States has the highest 

levels of affordable, safe food requires that the food system be protected at each stage from 

production through processing and consumption from pathogens, toxins, and chemical 

contaminants that cause diseases in humans. ARS’ current food safety research is designed to yield 

science-based knowledge on the safe production, storage, processing, and handling of plant and 

animal products, and on the detection and control of toxin producing and/or pathogenic bacteria 

and fungi, parasites, chemical contaminants, and plant toxins. 

Livestock Protection 

The Budget includes a total of $89 million for this program. ARS’ animal health program is 

directed at protecting and ensuring the safety of the Nation’s agriculture and food supply through 

improved disease detection, prevention, control, and treatment. Basic and applied research 

approaches are used to solve animal health problems, with emphasis on methods and procedures 

to control animal diseases.

Crop Protection

The Budget includes $155 million to support these activities. ARS research on crop protection is 

directed to understand pest and disease transmission mechanisms, and identify and apply new 

technologies that increase understanding of virulence factors and host defense mechanisms. 

Human Nutrition 

The Budget includes $45 million for this program. As excessive consumption replaces diseases 

related to malnutrition as a primary public health concern in the United States, the ARS human 

nutrition research program has increasingly focused on research studying the maintenance of

health throughout the lifespan along with prevention of obesity and chronic diseases via foodbased recommendations. 
66 2019 USDA BUDGETSUMMARY

Environmental Stewardship

The Budget includes $194 million for this program. ARS research programs in environmental 

stewardship emphasize developing technologies and systems that support profitable production 

and enhance the Nation’s vast renewable natural resource base. ARS is currently developing the 

scientific knowledge and technologies needed to meet challenges and opportunities in: water 

availability and watershed management, changes in climate, gaseous and particulate matter 

emissions, soil health and productivity, agricultural and industrial byproducts, agricultural system 

competitiveness and sustainability, and conservation and restoration of range lands, pasture 

ecosystems, and agroecosystems.

National Agricultural Library (NAL) 

The Budget includes $22 million for NAL. NAL is the primary agricultural information resource 

of the United States. The Library is the premier library for collecting, managing, and disseminating 

agricultural knowledge. It provides services directly to the staff of USDA and to the public, 

primarily via the NAL web site, www.nal.usda.gov. NAL provides library and information 

services that provide agricultural information to the public through Agricultural Online Access 

(AGRICOLA); conserves rare and at-risk items; and works in partnership with other USDA and 

Federal agencies to broadly disseminate information. 

Repair and Maintenance

The Budget includes $20 million to address repair and maintenance needs. ARS allocates funding 

for the repair and maintenance of existing ARS facilities and infrastructure. Performing regular 

repair and maintenance on ARS infrastructure can extend the life span of research laboratories and 

facilities, provide opportunities for longer term savings, and ensure Federal scientists’ capacity to 

conduct safe, quality research. Funding will support specific projects such as the replacement of 

air handling units, boilers, and chillers that have reached the end of their service lives.

Food Safety & 

Human Nutrition

14%

Environmental

Stewardship 

19%

Other Programs 

4%

NBAF O&M and 

Research Equipment 

5%

Total = $1 Billion

Product 

Quality/Value 

Added

7%

Crop Production & 

Protection

35%

Livestock Production 

& Protection

16%

Figure REE-2. ARS Research Programs
RESEARCH, EDUCATION,AND ECONOMICS 67

NATIONAL INSTITUTE OF FOOD AND AGRICULTURE

NIFA has responsibility for providing linkages between the Federal and State components of a 

national agricultural research, extension, and higher education system. NIFA provides funding for 

projects conducted in partnership with State agricultural experiment stations, the State Cooperative 

Extension System, land-grant universities, colleges, and other research and education institutions, 

as well as individual researchers. Federal funds are distributed to enhance capacity at universities 

and institutions by statutory formula funding and competitive grants. NIFA is responsible for 

administering the Nation’s leading competitive grants program for agricultural sciences, the 

Agriculture and Food Research Initiative (AFRI), which supports research with strong potential to 

contribute to major breakthroughs in the food, agricultural, natural resource, and human sciences.

The Budget includes $1.3 billion in discretionary funding for NIFA, including $375 million for 

AFRI, while eliminating lower priority programs. The Department continues to use capacity funds 

and competitive grants to generate solutions to the Nation’s critical food and agriculture problems. 

Table REE-2. NIFA Budget Authority (millions of dollars)

Item 2017

Actual

2018

Estimate

2019

Budget

Discretionary:

Formula Grants:

Smith-Lever 3 (b) and (c) ........................................................ $300 $298 $299

Hatch Act ................................................................................. 244 242 243

1890 Research and Extension .................................................. 100 99 99

McIntire-Stennis Cooperative Forestry ................................... 34 34 29

Expanded Food and Nutrition Education Program.................. 68 67 55

Renewable Resources Extension Act (RREA) ........................ 4 4 -

Facility Improvements at 1890 Institutions ............................. 20 20 20

Tribal Colleges Education Equity Grants Program ................. 3 3 3

Animal Health and Disease Research...................................... 4 4 -

Total, Formula Grants ........................................................... 777 771 749

1890 Capacity Building Grants (Research)................................ 19 19 19

Agriculture and Food Research Initiative................................... 375 372 375

Integrated Activities - Section 406 Organic Transition.............. 4 4 -

Crop Protection and Pest Management Activities...................... 34 33 25

Sustainable Agriculture Research/Education and Extension...... 27 27 19

Native American Endowment Fund Interest .............................. 5 5 5

Other Higher Education Programs ............................................. 30 30 15

Federally-Recognized Tribes Extension Program...................... 3 3 3

Food Safety Outreach Program .................................................. 5 5 5

Extension Services at 1994 Institutions...................................... 4 4 4

Federal Administration............................................................... 14 14 20

Decentralized GSA/DHS Payments a ......................................... 6 6 -

Electronic Grants Administration System .................................. 8 8 7

Food and Ag. Defense Initiative (Reg. Diagnostic Network) .... 8 8 -

Veterinary Medical Services Act ............................................... 7 6 5

Children, Youth, and Families at Risk ....................................... 8 8 8

Other Research, Extension and Integrated Programs ................. 38 38 3

Total, Discretionary Programs ...................................................... 1,373 1,363 1,263
68 2019 USDA BUDGETSUMMARY

Item 2017

Actual

2018

Estimate

2019

Budget

Mandatory:

Native American Endowment Fund ........................................... 12 12 12

Farm Bill:

Biomass Research and Development....................................... 3 - -

Organic Agriculture Research and Education Initiative .......... 19 19 -

Beginning Farmer and Rancher Development Program.......... 19 19 -

Specialty Crop Research Initiative .......................................... 51 51 80

Emergency Citrus Research and Extension Program .............. 23 23 -

Food Insecurity Nutrition Incentive Program .......................... 19 23 -

Agricultural Risk Management Education Program................ 5 5 5

Biodiesel Fuel Education Program b ........................................ 1 1 -

Community Food Projects c ..................................................... 9 9 9

Total, Farm Bill Programs..................................................... 148 150 94

Total, Mandatory Programs .......................................................... 160 162 106

Total, NIFA................................................................................... 1,533 1,525 1,369 

a Beginning in 2019, GSA rent payments will be included within the Federal Administration total. b Funding authority delegated to the Office of the Chief Economist and administered by NIFA. c Funding authority delegated to the Food and Nutrition Service and administered by NIFA.

Formula (Capacity) Programs

The Budget includes $749 million for these programs. NIFA has a number of programs that 

provide grants to the States on the basis of statutory formulas. These formula grants provide longterm, sustainable support needed to grow the capacity for agricultural research, education, and 

extension activities at land-grant institutions and State agricultural experiment stations. These 

programs include Hatch Act, Smith-Lever 3(b) and 3(c), 1890s research and extension, McIntireStennis Cooperative Forestry, and other grants. 

Agriculture and Food Research Initiative (AFRI) 

The Budget includes $375 million for AFRI. AFRI is the Nation’s premier competitive, peerreviewed research program for fundamental and applied sciences in agriculture. It is broad in scope 

with programs ranging from fundamental science to farm management and community issues. 

AFRI programs are aligned with six Farm Bill Priority Areas: 1) plant health and production and 

plant products; 2) animal health and production and animal products; 3) food safety, nutrition, and 

health; 4) bioenergy, natural resources, and environment; 5) agriculture systems and technology; 

and 6) agriculture economics and rural communities.

Minority-Serving Institution Programs

The Budget includes $170 million for these programs. NIFA has a number of programs dedicated 

to strengthening research and extension capacity at minority-serving institutions and the ability of 

these institutions to continue their effective programming. These include research, extension, and 

facilities programs at the 1890s institutions; education and extension grants for Tribal colleges 

(including the Federally Recognized Tribes Extension Program) and Hispanic-serving institutions; 

and education grants for Alaska Native-Serving, Native Hawaiian-Serving institutions, and Insular 

Areas institutions. These programs support minority-serving institutions in reaching 

underrepresented students interested in entering the food and agricultural workforce.
RESEARCH, EDUCATION,AND ECONOMICS 69

ECONOMIC RESEARCH SERVICE

ERS’ mission isto inform and enhance public and private decision making on economic and policy 

issues related to agriculture, food, natural resources, and rural America. Clientele include USDA 

and White House policy officials; USDA program administrators; the U.S. Congress; other Federal 

agencies; State and local governments; and organizations, including farm and industry groups. The 

Budget includes $45 million to focus on core programs of data analysis and market outlook. ERS 

provides statistical indicators for the farm sector (including farm income estimates and 

projections), current and expected performance of agricultural industry and trade, and food 

security in the US and abroad. Economic indicators are disseminated via reports, articles, and 

databases on the ERS website; special staff analyses, briefings, and individual contact.

Table REE-3. ERS Budget Authority (millions of dollars)

Item 2017

Actual

2018

Estimate

2019

Budget

Discretionary:

Economic Research Service ....................................................... $87 $86 $45

NATIONAL AGRICULTURAL STATISTICS SERVICE

NASS’ mission is to provide timely, accurate, and useful statistics in service to U.S. agriculture. 

Each year, NASS conducts over 450 surveys on 200 different commodities. These data illustrate 

the changing nature and needs of agriculture and provide accurate and up-to-date information 

necessary for decision-making by producers, agribusinesses, farm organizations, commodity 

groups, public officials, and others. NASS data also keep agricultural markets stable, efficient, and 

fair by ensuring accessible and objective data are available to both commodity market buyers and 

sellers. NASS also conducts the quinquennial Census of Agriculture (Ag Census), a complete 

count of U.S. farms and ranches and the people who operate them. The Ag Census surveys farmers 

and ranchers on land use and ownership, operator characteristics, production practices, income and 

expenditures, and other topics. 

The Budget includes $165 million in program funding, including $5 million to take ownership 

from the Department of Labor, and expand, the Farm Labor Survey. NASS currently conducts the 

Farm Labor Survey on a cost reimbursable basis for the Department of Labor; the Budget would 

directly fund NASS for this survey, and provide funds necessary for additional questions related 

to base rate and incentive rate for workers hired by U.S. farms and ranches. The Budget also 

includes a net reduction of $8 million in Agricultural Estimates by eliminating or reducing the 

sample size of select surveys.

The Ag Census provides comprehensive data on the agricultural economy with national, State, and 

county level details. The Ag Census data are relied upon to measure trends and new developments 

in the agricultural sector. NASS will publish the results of the 2017 Census of Agriculture in 2019. 

Table REE-4. NASS Budget Authority (millions of dollars)

Item 2017

Actual

2018

Estimate

2019

Budget

Discretionary:

Agricultural Estimates................................................................ $129 $128 $120

Census of Agriculture................................................................. 42 42 45

Total, NASS.................................................................................. 171 170 165 
70 2019 USDA BUDGETSUMMARY

DEPARTMENTAL ACTIVITIES

MISSION

Departmental staff offices provide essential support, without which other Departmental agencies 

and programs would be unable to carry out their duties, and are leading the Department’s efforts 

to improve customer service to the public. Their functions include legal counsel, economic 

analysis, communications coordination, financial management, budget and policy support, and 

program appeal hearings for the Department’s program activities. The Budget proposes funding to 

ensure that these offices can support staffing levels needed to provide leadership, oversight, and 

coordination. 

DEPARTMENTAL STAFF OFFICES

Table DA-1. Departmental Activities Budget Authority (millions of dollars)

Item 2017

Actual

2018

Estimate

2019

Budget

Discretionary:

Office of the Secretary ............................................................... $17 $21 $20

Office of Homeland Security................................................... 1 1 1

Office of Partnerships and Public Engagement ....................... 1 2 2

Departmental Administration .................................................. 24 22 23

Office of Communications ...................................................... 8 7 7

Total, Office of the Secretary................................................ 52 54 53

Executive Operations:

Office of the Chief Economist ................................................. 19 22 19

Office of Hearings and Appeals............................................... 15 15 14

Office of Budget and Program Analysis.................................. 10 9 9

Total Executive Operations................................................... 44 46 42

Office of the Chief Information Officer ..................................... 50 49 63

Office of the Chief Financial Officer ......................................... 8 8 6

Agriculture Buildings and Facilities........................................... 84 84 58

Hazardous Materials Management ............................................. 4 4 3

Office of the General Counsel.................................................... 45 44 42

Office of Ethics........................................................................ 4 4 3

Total, Discretionary Programs ...................................................... 289 293 270

Mandatory:

Farm Bill:

Biobased Markets Program ........................................................ 3 3 -

Biodiesel Fuel Education Program............................................. 1 1 -

Outreach for Socially Disadvantaged Farmers........................... 9 9 -

Total, Farm Bill Programs ....................................................... 13 13 -

Office of the Secretary:

Trust Fund................................................................................ 1 1 1

Total, Mandatory Programs .......................................................... 14 14 1

Total, DA ...................................................................................... 303 307 271
DEPARTMENTAL ACTIVITIES 71

Office of the Secretary (OSEC)

The Secretary, assisted by the Deputy Secretary, the Subcabinet, and members of their immediate 

staffs, directs and coordinates the work of the Department. The Budget includes $20 million for 

OSEC to fund continued policy direction for all areas of the Department including research, 

educational and regulatory activities, nutrition, conservation, farm groups, forestry and 

international agriculture, maintaining liaisons with the Executive Office of the President, members 

of Congress and the public. As part of a reorganization in 2017, the U.S. Codex Alimentarius 

Office was transferred from the Food Safety and Inspection Service to the Under Secretary for 

Trade and Foreign Agricultural Affairs (TFAA). The U.S. Codex Office is an interagency 

partnership that engages stakeholders in the development of international governmental and nongovernmental food standards. The Budget includes $3.8 million to continue to advocate science 

based codex policies.

Office of Homeland Security (OHS)

OHS provides a central homeland security oversight and assistance capability within USDA and 

is responsible for providing oversight and coordination of Departmental security matters. The 

Budget includes $1.4 million for OHS to provide leadership and coordination of the Departmental 

security matters and to ensure that USDA is prepared for potential threats or emergency situations.

Office of Partnerships and Public Engagement (OPPE)

The OPPE was established in FY 2018 to improve access to USDA programs for all USDA 

customers. Through OPPE, the Department consolidated the overlapping outreach activities 

previously conducted by the Office of Advocacy and Outreach, the Office of Tribal Relations, the 

Office of Faith Based and Neighborhood Partnerships, and the Military Veterans Liaison. The 

Budget includes $1.7 million to oversee the Advisory Committees on Minority Farmers and 

Beginning Farmers and Ranchers; oversee the activities of the Office of Small Farms Coordination 

and the Farm Worker Coordinator; and coordinate/conduct other outreach functions. 

Departmental Administration (DA) 

DA provides overall direction, leadership and coordination for the Department’s management of 

human resources, property, procurement, and small and disadvantaged business utilization 

programs. The Budget includes $22.5 million. 

Table DA-2. KPM

Key Performance Measure Baseline

2018 

Target

2019 

Target

Number of Tier 1 data centers across the Department. 39 20 2 

Ranking of the Top 10 Best Places to Work in the Federal Government for 

large agencies by the Partnership for Public Service. 7 Top 10 Top 10

Department’s overall real property footprint through effective disposal and 

consolidation efforts (million square feet). 31.9 31.6 31.3 

Department’s light duty fleet (vehicles in thousands). 29.4 28.8 28.2 

Office of Communications (OC) 

OC provides leadership and coordination for the development of communication strategies for the 

Department and plays a critical role in disseminating information about USDA’s programs to the 
72 2019 USDA BUDGETSUMMARY

general public. The Budget includes $7.3 million for OC to continue to develop effective 

communications strategies that increase the visibility and the transparency of USDA programs.

Office of the Chief Economist (OCE) 

OCE advises the Secretary and Department officials on the economic implications of Department 

policies, programs, associated regulations and proposed legislation; and serves as the focal point 

for the Department’s economic intelligence, analysis and review related to domestic and 

international food and agriculture markets. OCE also provides advice and analysis on bioenergy, 

global climate change, environmental services markets, sustainable development, agricultural 

labor, and new uses of agricultural products. The Budget includes $19.5 million for OCE. 

Office of Hearings and Appeals (OHA)

OHA, formerly the National Appeals Division, conducts evidentiary administrative appeal 

hearings and reviews arising from program operations of the Service Center Agencies, which 

include the Rural Development mission area, the Farm Service Agency, the Risk Management 

Agency, and the Natural Resources Conservation Service. OHA is also responsible for the 

regulatory hearing and administrative proceedings conducted by the Administrative Law Judges 

and the Judicial Officer. In 2017, administrative adjudication functions were transferred from 

Departmental Administration to Office of Hearings and Appeals. Amounts in 2017 and 2018 have 

been adjusted for comparability. The Budget includes $14.2 million for OHA to carry out these 

functions. 

Office of Budget and Program Analysis (OBPA) 

OBPA provides analyses and information to the Secretary and other senior policy officials to 

support informed decision-making regarding the Department’s programs and policies; and budget, 

legislative, and regulatory actions. The Budget includes $8.6 million for OBPA for the continued 

delivery of analyses and support to USDA policy officials.

Office of the Chief Information Officer (OCIO) 

OCIO provides policy guidance, leadership and coordination for the Department's information 

management, technology investment and cyber security activities in support of USDA program 

delivery. The Budget includes $62.5 million for OCIO to fund ongoing activities and to increase 

efforts for cybersecurity enhancements. Included in the request is an increase of $8.3 million to 

enhance the Department’s cyber security profile through the acquisition and implementation of 

relevant tools and services. This increase will allow USDA to implement Department-wide 

security enhancements to protect the network. In addition, the Budget includes $5 million for IT 

modernization initiatives. USDA is partnering with the White House Office of American 

Innovation to modernize its systems, such as consolidating end-user support services and data 

centers, and migrating data and functions to the cloud, which will improve IT service and reliability 

for both the internal and external USDA customer.

Office of the Chief Financial Officer (OCFO) 

OCFO provides overall direction and leadership in the development of financial management 

policies and systems and produces the Department’s consolidated financial statements. OCFO also 

oversees the provision of administrative accounting, payroll, and related systems for USDA and 

other agencies through operation of the National Finance Center. The Budget includes $5.5 million 

to support these activities.
DEPARTMENTAL ACTIVITIES 73

Agriculture Buildings and Facilities (Ag B&F) 

The Ag B&F account provides funding for all maintenance, utilities and administration of the more 

than 2.5 million square feet in the two USDA headquarters buildings, as well as the USDA-owned 

George Washington Carver Center. This funding will provide USDA Agencies with facilities 

necessary for them to carry out their missions. The Budget includes $58.3 million.

Hazardous Materials Management (HMM) 

HMM provides for the efficient management and cleanup of hazardous materials on facilities and 

lands under the jurisdiction, custody, and control of the Department; and the prevention of releases 

of hazardous substances from USDA facilities. The Budget includes $3.5 million for the HMM 

program.

Office of the General Counsel (OGC)

OGC provides legal oversight, counsel, and support to the Department’s agencies and offices. The 

Budget includes a total of $44.6 million to ensure that resources are available for OGC to carry 

out its full range of responsibilities and support USDA program delivery. Included in OGC’s 

request is an increase of $1 million to support increased enforcement of trade laws and agreements. 

The request also includes $2.9 million for the Office of Ethics, an office that reports to the General 

Counsel, to administer ethics regulations and statutes governing employee conduct; carry out 

public confidential financial disclosure reporting programs; develop and implement supplemental 

ethics policies, provide advice and assistance to USDA employees; and train employees on all 

ethics statutes, regulations, and policies.

OFFICE OF CIVIL RIGHTS

MISSION

The Office of Civil Rights (OCR) provides policy guidance, leadership, coordination and training, 

and complaint adjudication and processing for the Department and its agencies. OCR’s mission is 

to facilitate the fair and equitable treatment of USDA customers and employees and ensure the 

delivery and enforcement of civil rights programs and activities. Through its efforts, OCR strives 

to: (1) foster a positive civil rights climate at USDA; (2) process Equal Employment Opportunity 

(EEO) and program complaints in a timely, efficient and cost effective manner; (3) reduce and 

prevent EEO and program complaints through training and guidance; and (4) offer alternative 

dispute resolution services. The Budget requests $22.3 million for OCR.

Table DA-3. OCR Budget Authority (millions of dollars)

Item 2017

Actual

2018

Estimate

2019

Budget

Discretionary:

Office of Civil Rights ................................................................. $24 $24 $22
74 2019 USDA BUDGETSUMMARY

OFFICE OF INSPECTOR GENERAL

MISSION

The Office of Inspector General (OIG) conducts and supervises audits and investigations to 

prevent and detect fraud, waste, and abuse and to improve the effectiveness of USDA programs 

and operations. As the law enforcement arm of USDA, OIG also investigates criminal activity 

involving the Department’s programs and personnel. The Budget includes $87.4 million for OIG 

for audit and investigation review of the Department’s programs. 

Table DA-4. OIG Budget Authority (millions of dollars)

Item 2017

Actual

2018

Estimate

2019

Budget

Discretionary:

Office of Inspector General ........................................................ $98 $98 $87
APPENDIX 75

APPENDIX

NOTE: Appendix tables do not include proposed legislation.

Table APP-1. Staff Years

Mission Area / Agency 2017

Actual

2018

Estimate

2019

Budget

Farm Production and Conservation:

Farm Service Agency ................................................................................. 4,118 3,972 2,802

Risk Management Agency.......................................................................... 474 476 394

Natural Resources Conservation Service .................................................... 10,124 10,800 9,964

FPAC Business Center ............................................................................... - - 1,750

Trade and Foreign Agricultural Affairs:

Foreign Agricultural Service ...................................................................... 1,014 1,027 971

Rural Development:

Rural Development ..................................................................................... 4,807 4,825 3,945

Food, Nutrition, and Consumer Services:

Food and Nutrition Service......................................................................... 1,574 1,557 1,557

Food Safety:

Food Safety and Inspection Service............................................................ 9,355 9,165 9,335

Natural Resources and Environment:

Forest Service ............................................................................................. 32,427 32,427 27,777

Marketing and Regulatory Programs:

Animal and Plant Health Inspection Service .............................................. 7,615 7,957 7,109

Agricultural Marketing Service .................................................................. 2,711 3,535 3,635

Grain Inspection, Packers and Stockyards Administration ......................... 681 - -

Research, Education, and Economics:

Agricultural Research Service .................................................................... 6,483 6,483 5,644

National Institute of Food and Agriculture ................................................. 358 368 345

Economic Research Service........................................................................ 331 330 148

National Agricultural Statistics Service ...................................................... 973 1,022 982

Departmental Activities:

Office of the Secretary and Assistant Secretaries ....................................... 97 116 107

Office of Homeland Security and Emergency Coordination ...................... 49 52 52

Office of Partnerships and Public Engagement .......................................... 40 43 43

Departmental Administration ..................................................................... 349 394 398

Office of Communications.......................................................................... 62 70 71

Agriculture Buildings and Facilities ........................................................... 87 92 92

Hazardous Materials Management ............................................................. 4 4 4

Office of the Chief Economist .................................................................... 53 64 64

Office of Hearings and Appeals.................................................................. 78 90 85

Office of Budget and Program Analysis ..................................................... 48 47 45

Office of Chief Information Officer ........................................................... 987 1,106 1,118

Office of Chief Financial Officer................................................................ 1,524 1,637 1,635

Office of the General Counsel .................................................................... 265 258 242

Office of Ethics ........................................................................................ 21 20 15

Office of Civil Rights ................................................................................. 134 126 114

Office of Inspector General ........................................................................

Subtotal, USDA Federal Staffing ...............................................................

475 482 432

87,318 88,545 80,875

FSA, Non-Federal Staffing .........................................................................

Total, U.S. Department of Agriculture ......................................................

7,401 7,388 6,428

94,719 95,933 87,303
76 2019 USDA BUDGETSUMMARY

Table APP-2. Budget Authority (millions of dollars)

Mission Area / Agency / Funding Category 2017

Actual

2018

Estimate

2019

Budget

Farm Production and Conservation:

Farm Service Agency:

Discretionary Programs ........................................................................... $1,634 $1,605 $1,278

Discretionary Emergency Programs ........................................................ 132 29 -

Mandatory Programs................................................................................ 1 1 1

Commodity Credit Corporation Programs (mandatory) .......................... 7,065 8,450 11,349

Total, Farm Service Agency ................................................................. 8,831 10,085 12,628

Risk Management Agency:

Discretionary Programs ........................................................................... 84 84 67

Mandatory Programs................................................................................ 5,086 8,894 8,684

Total, Risk Management Agency.......................................................... 5,170 8,978 8,751

Natural Resources Conservation Service:

Discretionary Programs ........................................................................... 1,030 1,023 669

Discretionary Emergency Programs ........................................................ 103 - -

Mandatory CCC Programs....................................................................... 3,387 3,284 3,707

Total, Natural Resources Conservation Service .................................... 4,520 4,307 4,376

FPAC Business Center:

Discretionary Programs ........................................................................... - - 212

Mandatory Programs................................................................................ - - 60

Total, FPAC Business Center ............................................................... - - 273

Total, Farm Production and Conservation .................................................. 18,521 23,370 26,027

Trade and Foreign Agricultural Affairs:

Foreign Agricultural Service:

Discretionary Programs (excluding P.L. 480).......................................... 404 402 200

P.L. 480 (discretionary) ........................................................................... 1,600 1,589 -

Mandatory Market Development Programs ............................................. 278 298 230

Other Mandatory Programs...................................................................... 167 169 169

Total, Trade and Foreign Agricultural Affairs ............................................ 2,449 2,458 599

Rural Development:

Rural Utilities Service:

Discretionary Programs ........................................................................... 695 690 123

Rural Housing Service:

Discretionary Programs ........................................................................... 2,068 2,055 1,743

Rural Business - Cooperative Service:

Discretionary Programs ........................................................................... 103 102 -

Mandatory Programs................................................................................ 64 64 50

Total, Rural Business - Cooperative Service......................................... 167 166 50

Salaries and Expenses:

Discretionary Programs ........................................................................... 226 233 156

Total, Rural Development.......................................................................... 3,156 3,144 2,073

Food, Nutrition, and Consumer Services:

Food and Nutrition Service:

Discretionary Programs ........................................................................... 6,839 6,803 5,966

Mandatory Programs................................................................................ 101,484 98,069 96,580

Total, Food, Nutrition, and Consumer Services.......................................... 108,323 104,872 102,546
APPENDIX 77

Mission Area / Agency / Funding Category 2017

Actual

2018

Estimate

2019

Budget

Food Safety:

Food Safety and Inspection Service:

Discretionary Programs ........................................................................... 1,032 1,021 1,032

Mandatory Programs................................................................................ 247 236 240

Total, Food Safety ...................................................................................... 1,279 1,257 1,272

Natural Resources and Environment:

Forest Service:

Discretionary Programs ........................................................................... 5,631 5,595 4,767

Mandatory Programs................................................................................ 445 411 405

Total, Natural Resources and Environment ................................................... 6,076 6,006 5,172

Marketing and Regulatory Programs:

Animal and Plant Health Inspection Service:

Discretionary Programs ........................................................................... 1,002 996 742

Discretionary Emergency Programs ........................................................ 24 - -

Mandatory Programs................................................................................ 294 306 310

Total, Animal and Plant Health Inspection Service .............................. 1,320 1,302 1,052

Agricultural Marketing Service:

Discretionary Programs ........................................................................... 140 147 120

Mandatory Programs................................................................................ 1,161 1,175 1,131

Total, Agricultural Marketing Service .................................................. 1,301 1,322 1,251

Total, Marketing and Regulatory Programs................................................... 2,621 2,624 2,303

Research, Education, and Economics:

Agricultural Research Service:

Discretionary Programs ........................................................................... 1,269 1,258 1,019

Mandatory Programs................................................................................ 28 28 28

Total, Agricultural Research Service .................................................... 1,297 1,286 1,047

National Institute of Food and Agriculture:

Discretionary Programs ........................................................................... 1,373 1,363 1,263

Mandatory Programs................................................................................ 160 162 106

Total, National Institute of Food and Agriculture ................................. 1,533 1,525 1,369

Economic Research Service:

Discretionary Programs ........................................................................... 87 86 45

National Agricultural Statistics Service:

Discretionary Programs ........................................................................... 171 170 165

Total, Research, Education, and Economics................................................. 3,088 3,067 2,626

Departmental Activities:

Discretionary Programs .............................................................................. 314 317 292

Mandatory Programs .................................................................................. 14 14 1

Subtotal, Departmental Activities.................................................................. 328 331 293

Office of Inspector General:

Discretionary Programs ........................................................................... 98 98 87

Total, Departmental Activities....................................................................... 426 429 380

Subtotal, USDA ............................................................................................. 145,939 147,227 142,998

Offsetting Receipts, Rescissions & Other Adjustments.............................. -9,392 -3,621 -3,569

Total, U.S. Department of Agriculture ...................................................... 136,547 143,606 139,429
78 2019 USDA BUDGETSUMMARY

Table APP-3. Program Level (millions of dollars)

Mission Area / Agency / Program 2017

Actual

2018

Estimate

2019

Budget

Farm Production and Conservation:

Farm Service Agency:

Farm Loan and Grant Programs............................................................... $8,003 $7,996 $7,618

Conservation Programs ............................................................................ 1,886 2,130 2,222

Commodity Programs .............................................................................. 17,830 16,564 19,345

Commodity Credit Corporation Export Programs ................................... 5,936 6,376 6,329

Salaries and Expenses .............................................................................. 1,516 1,487 1,187

Other Programs ........................................................................................ 48 44 30

Total, Farm Service Agency ................................................................. 35,219 34,597 36,731

Risk Management Agency:

Salaries and Expenses .............................................................................. 84 84 67

Crop Insurance Fund................................................................................ 8,763 12,680 12,323

Total, Risk Management Agency.......................................................... 8,847 12,764 12,390

Natural Resources Conservation Service:

Private Lands Conservation Operations (Discretionary).......................... 864 858 669

Farm Security and Rural Investment Programs ....................................... 3,387 3,284 3,707

All Other .................................................................................................. 269 165 -

Total, Natural Resources Conservation Service 4,520 4,307 4,376

FPAC Business Center:

Discretionary Programs ........................................................................... - - 212

Mandatory Programs................................................................................ - - 60

Total, FPAC Business Center - - 273

Total, Farm Production and Conservation .................................................. 48,586 51,668 53,770

Trade and Foreign Agricultural Affairs:

Foreign Agricultural Service:

Export Credit Guarantees......................................................................... 1,582 5,500 5,500

Market Development Programs ............................................................... 279 301 233

Foreign Food Assistance.......................................................................... 1,968 1,955 166

Salaries and Expenses .............................................................................. 203 201 199

Total, Trade and Foreign Agricultural Affairs ............................................ 4,032 7,957 6,098

Rural Development:

Rural Utilities Service:

Loans and Grants ..................................................................................... 8,885 8,884 7,531

Rural Housing Service:

Loans and Grants ..................................................................................... 30,074 30,033 29,503

Rural Business - Cooperative Service:

Loans and Grants ..................................................................................... 1,419 1,580 515

Salaries and Expenses: 226 233 156

Total, Rural Development.......................................................................... 40,604 40,730 37,705

Food, Nutrition, and Consumer Services:

Food and Nutrition Service:

Supplemental Nutrition Assistance Program ........................................... 78,481 73,613 73,218

Child Nutrition Programs......................................................................... 22,981 24,434 23,340

Women, Infants and Children (WIC)....................................................... 6,351 6,314 5,751

All Other .................................................................................................. 510 511 237

Total, Food, Nutrition, and Consumer Services.......................................... 108,323 104,872 102,546
APPENDIX 79

Mission Area / Agency / Program 2017

Actual

2018

Estimate

2019

Budget

Food Safety:

Food Safety and Inspection Service......................................................... 1,279 1,257 1,272

Natural Resources and Environment:

Forest Service:

National Forest System ............................................................................ 1,903 1,890 1,720

Forest and Rangeland Research ............................................................... 308 306 261

State and Private Forestry ........................................................................ 322 320 182

Wildland Fire Activities........................................................................... 2,331 2,315 2,505

Capital Improvement and Maintenance ................................................... 364 362 95

Land Acquisition...................................................................................... 56 55 1

All Other .................................................................................................. 347 347 4

Total, Discretionary Accounts .............................................................. 5,631 5,595 4,767

Mandatory................................................................................................ 445 411 405

Total, Natural Resources and Environment ................................................... 6,076 6,006 5,172

Marketing and Regulatory Programs:

Animal and Plant Health Inspection Service:

Salaries and Expenses .............................................................................. 952 946 739

Emergency Funding ................................................................................. 24 - -

Mandatory................................................................................................ 294 306 310

Buildings and Facilities............................................................................ 50 50 3

Total, Animal and Plant Health Inspection Service .............................. 1,320 1,302 1,052

Agricultural Marketing Service:

Section 32 Funds...................................................................................... 842 840 789

All Other .................................................................................................. 459 482 462

Total, Agricultural Marketing Service .................................................. 1,301 1,322 1,251

Grain Inspection, Packers and Stockyards Administration - - -

Total, Marketing and Regulatory Programs................................................... 2,621 2,624 2,303

Research, Education, and Economics:

Agricultural Research Service .................................................................... 1,297 1,286 1,047

National Institute of Food and Agriculture ................................................. 1,533 1,525 1,369

Economic Research Service........................................................................ 87 86 45

National Agricultural Statistics Service ...................................................... 171 170 165

Total, Research, Education, and Economics................................................. 3,088 3,067 2,626

Departmental Activities:

Office of the Secretary................................................................................ 52 54 53

Office of Civil Rights ................................................................................. 24 24 22

Office of Inspector General. ....................................................................... 98 98 87

All Other Staff Offices................................................................................ 252 253 218

Total, Departmental Activities....................................................................... 426 429 380

Subtotal, USDA ............................................................................................. 215,034 218,610 211,873

Offsetting Receipts, Rescissions & Other Adjustments.............................. -9,392 -3,621 -3,569

Total, U.S. Department of Agriculture ...................................................... 205,642 214,989 208,304
80 2019 USDA BUDGETSUMMARY

Table APP-4. Outlays (millions of dollars)

Mission Area / Agency 2017

Actual

2018

Estimate

2019

Budget

Farm Production and Conservation:

Farm Service Agency......................................................................... $1,856 $1,915 $1,384

Commodity Credit Corporation ......................................................... 10,793 11,258 8,660

Risk Management Agency ................................................................. 4,293 10,585 8,745

Natural Resources Conservation Service ........................................... 3,762 3,121 5,091

FPAC Business Center....................................................................... - - 205

Trade and Foreign Agricultural Affairs:

Foreign Agricultural Service.............................................................. 180 309 240

P.L. 480 .............................................................................................. 1,433 1,309 799

Rural Development:

Rural Utilities Service ........................................................................ 861 866 599

Rural Housing Service ....................................................................... 2,094 1,939 1,806

Rural Business - Cooperative Service ................................................ 63 109 273

Salaries and Expenses ........................................................................ 221 276 169

Food, Nutrition, and Consumer Services:

Food and Nutrition Service ................................................................ 98,763 102,718 99,895

Food Safety:

Food Safety and Inspection Service ................................................... 1,054 1,037 1,043

Natural Resources and Environment:

Forest Service..................................................................................... 6,364 6,200 5,980

Marketing and Regulatory Programs:

Animal and Plant Health Inspection Service...................................... 1,244 1,545 1,124

Agricultural Marketing Service.......................................................... 378 429 396

Section 32 Funds................................................................................ 798 820 791

Research, Education, and Economics:

Agricultural Research Service............................................................ 1,179 1,421 1,214

National Institute of Food and Agriculture ........................................ 1,298 1,627 1,706

Economic Research Service............................................................... 82 101 53

National Agricultural Statistics Service ............................................. 183 163 166

Departmental Activities:

Office of the Secretary ....................................................................... 63 65 68

Office of the Chief Economist ........................................................... 18 33 20

Office of Hearings and Appeals ......................................................... 14 13 14

Office of Budget and Program Analysis ............................................ 9 9 9

Office of Chief Information Officer................................................... 36 66 46

Office of Chief Financial Officer ....................................................... 6 8 6

Agriculture Buildings and Facilities .................................................. 55 117 61

Hazardous Materials Management..................................................... 4 14 3

Office of the General Counsel............................................................ 49 50 46

Office of Civil Rights......................................................................... 29 30 22

Office of Inspector General................................................................ 89 110 88

Working Capital Fund........................................................................ -47 148 44

Subtotal, USDA .................................................................................... 137,224 148,411 140,766

Offsetting Receipts, Rescissions & Other Adjustments ..................... -9,666 -2,569 -1,152

Total, U.S. Department of Agriculture ............................................. 127,558 145,842 139,614
APPENDIX 81

Table APP-5. Discretionary Outlays (millions of dollars)

Mission Area / Agency 2017

Actual

2018

Estimate

2019

Budget

Farm Production and Conservation:

Farm Service Agency......................................................................... $1,642 $1,753 $1,443

Risk Management Agency ................................................................. 87 63 37

Natural Resources Conservation Service ........................................... 846 985 776

FPAC Business Center....................................................................... - - 157

Trade and Foreign Agricultural Affairs:

Foreign Agricultural Service.............................................................. 179 292 239

P.L. 480 .............................................................................................. 1,688 1,494 1,014

Rural Development:

Rural Utilities Service ........................................................................ 579 583 761

Rural Housing Service ....................................................................... 1,829 1,874 2,176

Rural Business - Cooperative Service ................................................ 104 125 259

Salaries and Expenses ........................................................................ 221 276 169

Food, Nutrition, and Consumer Services:

Food and Nutrition Service ................................................................ 6,194 6,235 5,939

Food Safety:

Food Safety and Inspection Service ................................................... 1,028 1,026 1,032

Natural Resources and Environment:

Forest Service..................................................................................... 5,791 5,584 5,354

Marketing and Regulatory Programs:

Animal and Plant Health Inspection Service...................................... 952 1,136 814

Agricultural Marketing Service.......................................................... 119 155 130

Research, Education, and Economics:

Agricultural Research Service............................................................ 1,154 1,393 1,186

National Institute of Food and Agriculture ........................................ 1,182 1,453 1,534

Economic Research Service............................................................... 82 101 53

National Agricultural Statistics Service ............................................. 183 163 166

Departmental Activities:

Office of the Secretary ....................................................................... 50 51 54

Office of the Chief Economist ........................................................... 17 32 19

Office of Hearings and Appeals ......................................................... 14 13 14

Office of Budget and Program Analysis ............................................ 9 9 9

Office of Chief Information Officer................................................... 36 66 46

Office of Chief Financial Officer ....................................................... 6 8 6

Agriculture Buildings and Facilities .................................................. 55 117 61

Hazardous Materials Management..................................................... 4 14 3

Office of the General Counsel............................................................ 49 50 46

Office of Civil Rights......................................................................... 29 30 22

Office of Inspector General................................................................ 89 110 88

Working Capital Fund........................................................................ -47 148 44

Subtotal, USDA .................................................................................... 24,171 25,339 23,651

Offsetting Receipts, Rescissions & Other Adjustments ..................... -429 -681 -762

Total, U.S. Department of Agriculture ............................................. 23,742 24,658 22,889
82 2019 USDA BUDGETSUMMARY

Table APP-6. User Fee Proposals (dollars in millions)

Mission Area / Agency / Proposal 2019 

BA

2019 

Outlays 

Food Safety: 

Food Safety and Inspection Service: 

Establish a user fee to cover all domestic inspection and import reinspection and most of the central operations costs for Federal, State, and 

International inspection programs for meat, poultry, and egg products. 

The fee would not cover Federal functions such as investigation, 

enforcement, risk analysis, and emergency response. This user fee would 

be implemented in 2020. Total collections are estimated to be $5.9 billion 

over 10 years. ........................................................................................... 0 0 

Marketing and Regulatory Programs: 

Agricultural Marketing Service:

Establish a user fee for the Marketing Orders and Agreements programs 

to recover the full cost of the agency’s oversight of these programs. Total 

collections estimated to be $200 million over 10 years. .......................... -20 -20 

Collect a user fee to recover the full cost of the Grain Regulatory 

Program. The fee would cover programs including grain standardization, 

quality, assessment, market integrity protection, and compliance. Total 

collections are estimated to be $200 million over 10 years. .................... 0 0 

Collect a license fee for those covered by the Packers and Stockyards 

Act. The proposed license fee would be assessed on livestock market 

agencies, dealers, stockyards, packers, live poultry dealers, and swine 

contractors. Market participants are protected from the adverse effects of 

anticompetitive and unfair business practices in meat and poultry 

marketing and distribution. Total collections are estimated to be $230 

million over 10 years. .............................................................................. -23 -23 

Animal and Plant Health Inspection Service:

Prescribe, adjust and collect fees to cover the costs incurred for activities 

in relation to the review, maintenance and inspections connected to 

licensing activities associated with the Animal Welfare program, VirusSerum-Toxin (VST) program, and the Biotechnology Regulatory 

Services (BRS). The estimated fees would result in receipts of $23 

million, which include $9 million for animal care, $10 million for 

veterinary biologics, and $4 million for BRS. Total collections estimated 

to be $230 million over 10 years.............................................................. -23 -23 

Establish a user fee for domestic agricultural quarantines and 

inspections. Total collections estimated to be $326 million over 10 years. -29 -29 
APPENDIX 83

Table APP-7. Budget-Related Proposals

Mission Area / Agency / Proposal 2019 

BA

2019 

Outlays 

Farm Production and Conservation: 

Farm Service Agency:

Limit commodity and conservation assistance to those producers that 

have an Adjusted Gross Income (AGI) of $500,000 or less. Total savings 

over 10 years are estimated to be about $1.1 billion................................ -114 -114 

Eliminate the use of Commodity Certificates. Total savings over 10 

years are estimated to be $113 million. ................................................... -34 -34 

Remove the separate $125,000 payment limit for peanuts. Total savings 

over 10 years are estimated to be $524 million. ...................................... -44 -44 

Make Marketing Assistance Loan (MAL) forfeitures subject to the 

$125,000 payment limit. Total savings over 10 years are estimated to be 

$10 million. .............................................................................................. -1 -1 

Limit all farms to one manager that can qualify as actively engaged. 

Total savings over 10 years are estimated to be $700 million. ................ -70 -70 

Eliminate the Economic Adjustment Assistance Program (EEAP) for 

Upland Cotton Users. Total savings over 10 years are estimated to be

$500 million. ............................................................................................ -50 -50 

Eliminate the Livestock Forage Disaster Program (LFP). Total savings 

over 10 years are estimated to be about $4.5 billion................................ -416 -416 

Target enrollment in CRP to environmentally sensitive areas, limit the 

enrollment of whole farm fields (with the exception of grasslands) and 

eliminate all funding for signing and practice incentive payments (SIPs 

and PIPs), with the exception of the Conservation Reserve Enhancement 

Program. Total savings over 10 years are estimated to be $876 million. -136 -136 

Limit CRP payments to 80 percent of the National Agricultural Statistics 

Service (NASS) county rental rates. Total savings over 10 years are 

estimated to be about $1.2 billion. ........................................................... 0 0 

Risk Management Agency:

Target crop insurance subsidies to producers that have an Adjusted 

Gross Income of $500,000 or less. The savings over ten years is 

estimated to be $724 million.................................................................... 0 0 

Reduce the premium subsidy for Harvest Price coverage by 15 

percentage points, and reduce all other insurance policy subsidies by 10 

percentage points other than catastrophic level of coverage (CAT). The 

savings over ten years is estimated to be $22.4 billion............................ 0 0 

Reduce the cap on underwriting gains on Approved Insurance Providers 

(AIPs) to 12 percent of the return on retained premium. The savings over 

ten years is estimated to be $3.0 billion................................................... 0 0
84 2019 USDA BUDGETSUMMARY

Mission Area / Agency / Proposal 2019 

BA

2019 

Outlays 

Natural Resources Conservation Service 

Limit conservation assistance to those producers that have an Adjusted 

Gross Income (AGI) of $500,000 or less................................................. 0 0 

Eliminate the Conservation Stewardship Program. The savings over 10 

years is estimated to be $12 billion.......................................................... 0 0 

Eliminate the Regional Conservation Partnership Program. The savings 

over 10 years is estimated to be $755 million.......................................... -100 -2 

Provide additional funding of $60 million per year for the Environmental 

Quality Incentives Program. The cost over 10 years is estimated to be 

$448 million ............................................................................................. 60 0 

Trade and Foreign Agricultural Affairs:

Foreign Agricultural Service:

Eliminate funding for the Food for Progress. Total savings over 10 years 

is $1.7 billion ........................................................................................... -166 -166 

Eliminate funding for the Agricultural Wool Apparel Manufacturers 

Trust Fund. Total savings over 10 years is $30 million........................... 0 0 

Rural Development:

Rural Business-Cooperative Service:

Eliminate the Rural Energy for America loan and grant program. Total 

savings over 10 years are estimated to be $428 million .......................... -50 -4 

Eliminate the Rural Economic Development Program. Total savings 

over 4 years are estimated to be $318 million ......................................... 0 0 

Rural Utilities Service:

Eliminate interest payments to the Electric and Telecom Cushion of 

Credit account. Total savings over 10 years are estimated to be $1.3 

billion ....................................................................................................... -129 -129 

Food, Nutrition, and Consumer Services: 

Food and Nutrition Service: 

Convert part of SNAP allotments to USDA Foods Packages. Total 

savings over 10 years are estimated to be $129.2 billion. ....................... -12,086 -12,086 

Restrict Broad Based Categorical Eligibility to households receiving 

Temporary Aid for Needy Families cash assistance. Total savings over 

10 years are estimated to be $30.6 billion................................................ -1,501 -1,501
APPENDIX 85

Mission Area / Agency / Proposal 2019 

BA

2019 

Outlays 

Limit work requirement waivers for Able Bodied Adults without 

Dependents (ABAWD) to counties with 10 percent or greater 

unemployment. Total savings over 10 years are estimated to be $17.8 

billion ....................................................................................................... -1,550 -1,550 

Eliminate the Low Income Home Energy Assistance Program 

(LIHEAP)/Heating Cooling Standard Utility Allowance (HCSUA) link, 

creating a single, consistent nationwide policy. Total savings over 10 

years are estimated to be $13.1 billion..................................................... -641 -641 

Cap Federal State administrative expensesto States at the 50th percentile 

with inflation adjustments in future years. Total savings over 10 years 

are expected to be $9.8 billion ................................................................. 0 0 

Standardize the HCSUA levels for a consistent approach nationally. 

Total savings over 10 years are expected to be $10.2 billion .................. -503 -503 

Increase the upper ABAWD age limit from 49 to 62. Total savings over 

10 years are expected to be $5.8 billion................................................... 0 0 

Increase the upper age limit for elderly participants to 62. Total savings 

over 10 years are expected to be $124 million ........................................ 0 0 

Eliminate Nutrition Education. Total savings over 10 years are expected 

to be $4.7 billion ...................................................................................... -428 -428 

Eliminate the minimum benefit default of $16. Total savings over 10 

years are expected to be $2.7 billion........................................................ -253 -253 

Cap benefits at the six-person maximum allotment. Total savings over 

10 years are expected to be $1.7 billion................................................... -161 -161 

Mandate the use of the National Accuracy Clearinghouse. Total savings 

over 10 years are expected to be $1.1 billion........................................... -99 -99 

Eliminate State performance bonuses. Total savings over ten years are 

expected to be $480 million ..................................................................... -48 -48 

Eliminate 15-percent ABAWD exemptions. Total savings over ten years 

are expected to be $3.2 billion ................................................................. -1,004 -1,004 

Consideration of potential interactions reduces savings by $17 billion 

over ten years ........................................................................................... 1,105 1,105 

Natural Resources and Environment:

Forest Service:

Reauthorize the Federal Lands Recreation Enhancement Act, which 

currently expires on September 30, 2018, to September 30, 2021. This 

reauthorization would enable the agency to continue to retain recreation 

fees for use in providing quality recreation facilities and supporting land 

management operations ........................................................................... -100 -77
86 2019 USDA BUDGETSUMMARY

Mission Area / Agency / Proposal 2019 

BA

2019 

Outlays 

Reauthorize the Forest Service Facility Realignment and Enhancement 

Act, which expired in September 2016, until September 2019. This 

reauthorization would enable the agency to convey facilities and retain 

sales proceeds to maintain infrastructure safety and customer service.... -1 0
APPENDIX 85

United States Department of Agriculture