United States Department of Agriculture 

February 2023 

Response to USDA Equity 

Commission Interim Report 

 

 

 

USDA 

1 
USDA 

~ 

Unltod Slatos 

Department ol 

Agriculture 

Office of the Secretary 

Washington, DC 20250 

February 28, 2023 

To the American People, 

At USDA, we are steadfast in our commitment to advancing equity as we face the challenges of our time 

and deliver on our wide-ranging mission. Our commitment to equity is about creating an agricultural 

economy, a rural economy, and an American economy that create opportunity for all. It’s in lock step 

with building our economy from the bottom up and middle out. And it’s about ensuring that farmers, 

ranchers, landowners, communities, families, and business owners have the support and tools they need to 

build a good life in the communities they love. 

Out of this commitment to equity, in February 2022, we announced the members of the Equity 

Commission and its Subcommittee on Agriculture, an important step towards implementing an Executive 

Order President Biden issued on his first day in office. We sought Americans who could share their 

voices and experiences supporting farmers, ranchers, farmworkers, people of color, women, Tribal and 

Indigenous communities, individuals with disabilities, individuals with limited English proficiency, rural 

communities, and LGBTQI+ communities. We also made certain to include the important perspectives 

from those in the small business community and higher education institutions, among others. The 

Commission, led by co-chairs Deputy Secretary Dr. Jewel Bronaugh and United Farm Workers President 

Emeritus Arturo S. Rodriguez, took immediate action to convene a forum to listen to external 

stakeholders, understand where barriers to accessing USDA programs and services exist, and assess data 

to identify opportunities to advance equity. In August 2022, we added a Subcommittee on Rural 

Community Economic Development to ensure that we address systemic inequalities in rural development 

and underserved communities to begin to earn the trust of those who have not benefited from USDA 

programs and investments despite their long-standing need. 

Establishing the Equity Commission was a first step towards building a more equitable USDA that lives 

up to its name as the People’s Department. We are truly grateful for the expertise, time, and dedication 

the members have provided over the past year. The passion of the members is highly evident in how each 

recommendation is aimed at improving USDA services to our diverse stakeholders. While this is a subset 

of many bold actions that we will seek to implement, they establish the foundation upon which USDA 

will build a more just and equitable farm and food system. USDA will institutionalize these strategies to 

become an organization that is trusted today and by future generations. 

Our country is stronger when everyone participates and more vulnerable when people are left out. The 

Equity Commission’s recommendations, and other related efforts the Department is already undertaking, 

will make our programs benefit every working American, particularly those who have been left behind. 

On behalf of the Department, and all those we serve, I thank the Equity Commission for its efforts to 

identify ways to improve the lives of Americans for generations to come. 

Sincerely, 

THOMAS J. VILSACK 

Secretary 

2 
 

 

 

 

 

 

 

 

 

 

 

 

What Equity Means to USDA 

Founded in 1862, the Department’s story reflects both the aspirations and historical missteps of this 

nation. USDA has not always fairly served all its customers and accepts accountability for this troubled 

history of discrimination. USDA has taken many actions to do better, and is committed to improving the 

Department’s systems, processes, policies, and organizational culture. USDA is advancing a collective 

and ongoing effort to live up to its name as “The People’s Department” and working to build a more 

perfect union by modernizing its institutions to reflect and serve all the communities that together 

compose “We the People.” 

The Commission’s Interim Report has identified key areas of opportunities and has also helped to 

underscore alignment with the Department’s ongoing equity efforts and commitment to improve the 

lives of all Americans for generations to come. USDA has taken a hard look at what equity means to its 

diverse stakeholders and identified ways the Department can provide immediate relief and progress to 

those it serves and those it has not yet reached. Through its Equity Action Plans the Department is 

taking swift action in alignment with Executive Orders, civil rights laws, and other applicable laws and 

authorities to advance equity in program design, delivery, and services. USDA is doing its part to help 

build the economy from the bottom up and the middle out, and to transform the food system so that it 

provides opportunities for everyone, not just the few. 

The Equity Commission’s Interim Report provided recommendations for USDA’s consideration that focus 

on the following areas for near and long-term actions: 

• How USDA Works with Farmers, Ranchers, and Producers Day-to-Day 

• USDA’s Need for Department-Wide Change 

• USDA’s Commitment to Farmworkers and Their Families 

• Re-evaluating Other USDA Programs 

The information within this document mirrors the structural organization of the recommendations 

within the Equity Commission’s Interim Report to highlight a subset of actions already underway within 

the Department. The efforts identified in this document do not reflect the totality of the work USDA is 

doing to support equitable service delivery. The USDA equity website provides a more comprehensive 

look at Departmental activities since January 2021 that are aligned with advancing equity. 

3 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

How USDA is Advancing Equity for Farmers and Ranchers 

The Equity Commission interim report provides a set of recommendations focused on advancing equity 

for farmers and ranchers. Since the start of the Biden-Harris Administration, USDA has engaged 

producers in new and more effective ways, streamlining the delivery of its programs, opening the doors 

of agriculture to all, and providing a more effective and holistic farm safety net. The Department is 

reducing barriers to programs and improving support to underserved farmers, ranchers, landowners, 

and communities by providing ways for stakeholders to share their experiences, insights, and needs. 

USDA is helping producers increase their revenue sources and income opportunities so their 

operations—and the agricultural economy—can become more sustainable, resilient, and profitable. 

USDA is helping farmers create a more resilient agricultural economy that can weather the challenges of 

the twenty-first century. Through various efforts to build markets for climate-smart commodities, create 

new and better tools to manage risk to crops and revenue, take proactive steps to improve access to 

programs, and increase support for working lands conservation practices. 

The first recommendation within the Equity Commission’s Interim Report addresses issues of Heirs’ 

Property and Fractionated Land, which identifies access barriers to USDA programs for historically 

underserved producers, farmers, ranchers, and other landowners. In the Spring of 2021, the Farm 

Service Agency (FSA) expanded USDA’s partnership efforts to support farmers and ranchers resolve land 

ownership and succession issues through non-loan options such as cooperative agreements and grant 

opportunities. For example, the Socially Disadvantaged Farmers and Ranchers Policy Research Center at 

Alcorn State University continues to lead the development and implementation of an heirs’ property 

and fractionation issues training curriculum targeted to underserved farmers and ranchers, who are 

disproportionately impacted by these issues. The Federation of Southern Cooperatives/Land Assistance 

Fund has been conducting outreach and technical assistance on the Heirs’ Property Relending Program 

(HPRP) to ensure eligible heirs learn about the program, and receive programmatic and general support 

when applying to the HPRP, and to assist individuals working to resolve title issues, as well as supporting 

their access and participation in the HPRP program. 

USDA is also leveraging the Taxpayer Education and Asset Protection Initiative to facilitate the delivery 

of heirs’ property resources and estate planning training to farmers and ranchers because tax and legal 

issues often go hand in hand for underserved producers. FSA is increasing outreach regarding the HPRP 

to eligible lenders and is applying lessons learned from the first application process in Fiscal Year 2022 

(FY22). FSA is identifying barriers to participation and are working to align the Highly Fractionated Indian 

Land Loan Program (HFIL) more closely with the HPRP based on input from Tribes and Native American 

Community Development Financial Institutions (CDFIs). USDA recognizes that more research and 

engagement with Tribal and Alaskan Native communities are needed and is committed to deepening 

these partnerships. 

Of note, the National Agricultural Library (NAL) collaborated with their Agricultural Law Information 

Partnership collaborators at the National Agricultural Law Center (University of Arkansas) and the 

Vermont Law School to develop and disseminate resources on Heirs’ Property. The materials are 

available on the NAL website and on the collaborators’ websites. These are just some of the initiatives 

USDA is using to empower farmers and ranchers in their financial decision-making while ensuring they 

can protect their farm assets and transfer them to the next generation. 

4 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

With respect to the Commission’s recommendation on 

community-led land access and transition projects, in August 

2022, with authority and funding provided through the American 

Rescue Plan, FSA announced a grant and cooperative agreement 

program making up to $300 million to assist underserved 

producers through the Increasing Land, Capital and Market Access 

Program. Recognizing the importance of land access to agriculture 

and opportunity, this program is designed to help underserved 

producers by increasing land, capital, and market access. The 

program will fund cooperative agreements or grants for projects 

that help move underserved producers from surviving to thriving. 

The application period for this opportunity closed in midDecember and applications are currently under review, with 

awardees slated to be announced by Summer 2023. 

USDA is in alignment with Commission’s recommendations on 

climate change, conservation, and risk management and is 

incorporating an equity lens in the programs that touch these 

areas. The Department is committed to an approach to climatesmart agriculture and forestry that is voluntary, incentive-based 

and collaborative that expands and creates new markets for 

climate-smart commodities and greenhouse gas reductions that 

reward farmers, ranchers, and forest owners for their 

stewardship. 

The Department has made significant investments in partnerships 

to support climate-smart farmers, ranchers, and forest 

landowners through the Partnerships for Climate-Smart 

Commodities. USDA incorporated stakeholder concerns into the 

program design and made equity a factor in award selection, 

encouraging partnerships with underserved producers. These 

efforts will finance the production of climate-smart commodities 

through partner-led pilot and demonstration projects that help 

expand and create markets for climate-smart agricultural 

commodities and will provide new sources of revenue for 

producers. 

FSA also updated the Conservation Reserve Program (CRP) and 

Conservation Reserve Enhancement Program (CREP) to improve 

their environmental benefits while expanding the reach of the 

program. In 2021, FSA added a Climate-Smart Payment Incentive 

and higher payment rates for CRP and modified CREP to allow for 

added staffing capacity and to increase eligibility to a broader 

array of entities including Tribes. This past year, FSA enrolled 

about 5.6 million acres into the CRP through its General, 

Continuous and Grassland signups in 2022, which surpassed the 

3.9 million acres expiring in 2023. Grassland CRP had its largest 

Equity Conservation 

Cooperative 

Agreements 

The Natural Resources Conservation 

Service (NRCS) funds one- to twoyear projects to expand the delivery 

of conservation assistance to 

producers who are new to farming, 

are low-income, identify as one or 

more marginalized race or ethnicity, 

and/or are military veterans. The 

program encourages new 

partnerships and the development 

of State and Community leadership 

for underserved producers, with 

projects focusing on key 

conservation priorities including: 

• Improving soil health and water 

quality, 

• Providing habitat for at-risk 

wildlife, 

• Improving natural resources and 

productivity on agricultural 

lands, 

• Increasing access to 

conservation staff and resource 

in urban areas, and/or 

• Building and strengthening local 

and regional food systems and 

markets. 

In FY22, NRCS administered a $50 

million investment in 118 

partnerships to improve equity in 

access to conservation programs 

through Equity Conservation 

Cooperative Agreements and is 

investing another $70 million in 

FY23. 

5 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

signup in history, enrolling 3.1 million acres. In 2022, FSA signed historic CREP agreements with three 

tribal nations in the Great Plains: Cheyenne River, Oglala, and Rosebud Sioux tribes. These partner 

agreements will help enroll eligible grassland, pastureland, and other agricultural lands within the 

boundaries of their reservations. USDA’s Regional Climate Hubs are also working with Tribal 

stakeholders to include their knowledge and priorities as they deliver science-based climate-smart 

agriculture tools and programs. Specific examples include the Native Climate project and the 

Collaborative Conservation and Adaptation Strategy Toolbox, which includes codeveloping the Drought 

Severity Evaluation Tool for use by the Navajo Nation. 

Another example where USDA is making progress and implementing elements of the conservation 

recommendation related to small-scale and diversified farming is through the new 2023-2027 action 

plan for Agricultural Research Service (ARS) National Program 216 (Sustainable Agricultural Systems) 

which prioritizes research that enhances the sustainability of small-scale, diversified agriculture and 

food systems, including improving and measuring climate mitigation impacts. ARS researchers in 

Auburn, Alabama, have been working to develop scale-appropriate technology (e.g., walk-behind no-till 

transplanters, thermal roller crimpers for termination of cover crops) for implementing conservation 

practices like minimum tillage and cover cropping on small-scale farms, including organic systems. 

USDA appreciates the Equity Commission’s positive response to the Risk Management Agency (RMA) 

work leveraging tools in the 2018 Farm Bill to expand crop insurance to more crops and producers. This 

past year, through a series of stakeholder engagements, RMA was able to learn about the needs of 

specialty crop and underserved producers, which led to the development of a new nursery policy that is 

easier for producers to access and for insurance companies to sell and service; a new policy for 

strawberries in Florida and California; several modifications to the Whole-Farm Revenue Protection 

program to expand eligibility limits and provide more coverage for organic and livestock producers; and 

a new Micro Farm Program targeted at providing crop insurance for smaller producers who sell locally, 

such as urban producers and those that sell to farmers markets. USDA will continue to adapt to meet 

the needs of its diverse stakeholders. 

In January 2023, FSA announced updates to the Noninsured Crop Disaster Assistance Program that 

improves access to this important risk management tool. Beginning with the 2022 crop year, FSA will 

designate the CCC-860 form as the application for basic 50/55 NAP coverage. This update will provide 

free basic NAP coverage and waive the NAP service fee for producers who have certified as a socially 

disadvantaged, limited resource, beginning or veteran farmer or rancher. While this change is recent, we 

expect it to help streamline and expand enrollment, allowing more producers to receive coverage and 

better manage risk. 

Within its technical assistance and outreach recommendation, the Equity Commission highlighted 

stakeholder difficulties navigating USDA programs and services. USDA is helping to ensure that 

underserved farmers, ranchers, and foresters have the tools, programs and support they need to 

succeed in agriculture, in part, by providing over $100 million in American Rescue Plan Act (ARP) funding 

to over 30 organizations to provide technical assistance to connect underserved producers with USDA 

programs and services. The goal is to provide targeted support for at-risk producers to avoid land loss, 

develop sound business plans, expand revenues and their markets, and unlock access to capital. 

Cooperative agreements with trusted technical assistance providers are an important step in building 

trust and reducing barriers so underserved producers can better access USDA programs and services. 

6 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Two cohorts of organizations have been selected to serve as partners to USDA based on their proven 

track records working with underserved producer communities, such as veterans, new farmers, limited 

resource producers, and producers living in high-poverty areas. 

The Department agrees with the Commission’s sub-recommendation to increase technical assistance 

and financial support for young and beginning farmers and has identified Beginning Farmer and Rancher 

Coordinators for each state from State Office staff of the FSA, NRCS, and Rural Development (RD), and 

regional staff of RMA. These coordinators are tasked with leading the development and implementation 

of a beginning farmer education, outreach, and technical assistance plan for their state. They are 

supported by regional coordinators and the USDA National Beginning Farmer Coordinator. This work 

includes targeting small, minority, and specialty crop producers through a variety of outreach channels 

including online education and outreach. The state coordinators also conduct stakeholder engagement, 

maintain relationships with non-profits and other service providers in their states, and make beginning 

farmer referrals to these organizations. 

The Interim Report includes a recommendation that recognizes the many forms of traditional 

agriculture, including tribal and Native American, Alaskan Native, and Native Hawaiian agriculture. The 

Department values and respects the diversity of traditional agriculture. Last year, FSA updated the 

Livestock Indemnity Program payment rates to recognize traditional tribal animals which better reflect 

the true market value of non-adult beef, beefalo, bison, and dairy animals. Other FSA programs 

(Livestock Forage Program, Livestock Indemnity Program, Emergency Assistance for Livestock, 

Honeybees and Farm Raised Fish Program) were also updated to include horses, which previously were 

not eligible. This change will allow eligible tribal ranchers who use forage to raise their horses to 

participate in the programs. When the results of the 2022 Census of Agriculture are complete, USDA will 

analyze the data particularly as they relate to the groups the Equity Commission has identified. 

The Equity Commission notes the complexity of FSA loan programs and processes challenges and how 

this can present a barrier to accessing USDA programs and services. Significant progress has been made 

in simplifying loan processes over the past two years and the Department will continue to improve the 

access to—and customer experience with—FSA programs. In February 2023, FSA implemented a 

simplified direct farm loan application process, drastically reducing the burden and time spent on its 

forms. The agency also rolled out a loan assistance tool that helps farmers and ranchers better navigate 

the farm loan application process. 

The Equity Commission emphasized the need to provide producers with proactive loan servicing and 

address longstanding debt that is making it hard for farmer to keep farming. As part of implementation 

of the Inflation Reduction Act signed by President Biden in August 2022, FSA provided nearly $800 

million in financial assistance to more than 13,000 distressed farmers and plans to assist thousands 

more in 2023. This work accompanies FSA’s ongoing efforts to improve farm lending programs with a 

focus on improved loan servicing and ongoing support to keep farmers farming, rather than requiring 

farmers to become distressed before providing assistance. 

The Inflation Reduction Act also provided resources for the Department to provide help to those 

impacted by discrimination in USDA farm lending programs. In October 2022, the Department issued a 

Request for Information to hear the valuable perspectives of farmers, farm advocates, academics, 

legislators, tribal governments, and other experts. The process of developing the program to provide 

financial assistance is underway. In accordance with the requirements of the Federal Acquisition 

7 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Regulation (FAR), the Department will issue contracts to vendors for program administration that will 

coordinate the delivery of a national program of financial assistance to impacted farmers, ranchers or 

forest landowners. 

The Commission called attention to the disparities in farm program benefits paid to underserved 

producers. USDA acknowledges these disparities and welcomes further research, discussion, and work 

with Congress to address systemic inequities such as programs limited to only a few row crops or even 

specific farms with base acres of those crops that are baked into USDA statutes. In the meantime, USDA 

is working to ensure the resources it receives go to those who need them the most. The Farm 

Production and Conservation (FPAC) mission area has risen to the challenge as the pandemic continued 

to disrupt operations, markets, and lives across the countryside. The Pandemic Assistance for Producers 

initiative filled gaps in previous assistance, making sure that USDA was reaching a much broader set of 

producers, including those in underserved communities, small- and medium-sized producers, farmers 

and producers of non-commodity crops, and other agricultural businesses. This initiative also provided 

an opportunity for the Department to evaluate and adjust how it delivers programs based on feedback 

from the agriculture industry and add mechanisms such as looking at an operations overall revenue 

decline to target assistance to farmers with more severe impacts instead of the normal crop-by-crop 

approach that is less holistic. 

Early in 2021, USDA briefly paused the Coronavirus Food Assistance Program 2 (CFAP 2) to make 

significant improvements to the program and to better meet the needs of producers and industries left 

out of earlier pandemic assistance programs. This included a $4.7 million investment to establish 

partnerships with organizations to provide outreach and technical assistance to underserved producers 

leading to a fourfold increase in participation by underserved producers after the program reopened in 

April 2021. More recently, FSA announced that it would be making automatic CFAP 2 top-up payments 

to underserved producers. 

In addition to making substantial improvements to CFAP 2, USDA created several new pandemic 

assistance programs to support those producers who experienced substantial losses due to the 

pandemic but who had not been included in previous rounds of assistance. FSA focused on making sure 

the assistance helped address every producer’s true, comprehensive losses. This meant creating new 

programs to support transitioning organic producers, cotton and wool apparel manufacturers, biofuel 

producers, producers who sold hogs through a spot market sale, livestock producers impacted by 

insufficient access to processing, timber harvesting and hauling businesses, dairy farmers who received 

a lower value due to market abnormalities, and more. It also meant reimagining and improving USDA’s 

approach to disaster assistance. This expansion of assistance to cover more types of agriculture and 

farming communities has shown up through an average increase of 50,000 more new farms registering 

with FSA during each of the past three years relative to before the broadened programs. 

The Equity Commission is also critical of the County Committee (COC) system which is a longstanding 

and statutorily required structure. Required by law, USDA continues the County Committee system; 

however, the Department is working to recruit Committee members who reflect the full diversity of 

American agriculture, improve their trainings, and develop strategies to increase engagement with 

farmers who have not been represented in the past. FSA has worked on an improved and robust training 

that provides more clarity on the functions of the Committee members. In addition, FSA is in a pilot 

stage to implement Urban County Committees and leverage the targeted deliverables to inform 

improvements in the traditional county committees. FSA appreciates the Equity Commission 

recommendations and is committed to improving the accountability of the County Committee system. 

8 
 

 

 

 

 

 

 

 

 

 

 

How USDA is Advancing Equity for USDA Agencies, Employees, and Stakeholders 

Equity is now at the core of what USDA does; institutionalizing diversity and equity is a top priority of 

the Biden-Harris Administration. There are many steps that need to be taken to make equity a part of 

the Department’s culture and make it a great place to work for all. Changes in the structure, leadership 

responsibilities, and accountability measures are all being considered, and the Commission’s specific 

recommendations will be a key part of that process. 

In the meantime, progress is being made. A robust diversity, equity, inclusion and accessibility (DEIA) 

strategic plan was adopted in 2022. USDA is also hiring its first Chief Diversity and Inclusion Officer 

(CDIO), reporting directly to the Secretary. A CDIO office is being established and funded as a permanent 

program office in USDA. The office is leading USDA’s internal work to institutionalize best practices for a 

diverse, equitable, accessible, and inclusive organization. It prioritizes developing a workforce that 

reflects the diversity of the communities USDA serves, bringing the best talent to USDA, investing in the 

workforce, and creating a culture where everyone feels welcome, and are given developmental 

opportunities to perform their best. A well-trained and robust field staff is also essential to providing the 

service producers deserve. 

USDA is institutionalizing diversity and equity, including through hiring practices. FSA, for example, is 

prioritizing hiring staff in county office locations while taking steps to address systemic concerns with 

recruitment and retention. FSA significantly increased use of incentives to improve recruitment and 

retention of high-caliber employees. In FY22, FSA issued 334 student loan repayments to employees 

who, in exchange, entered into 3-year service agreements with the agency. FSA has also been 

addressing concerns about competitive salaries, for entry and mid-career pay while working toward fully 

staffing offices. Through focused recruitment and outreach efforts to minority serving institutions, FSA 

saw an 81% increase in hires from diverse backgrounds in county office staff in FY22 as compared to 

FY21. 

In addition, the Forest Service continues to make strides in creating sustainable pathways to full-time 

employment for skilled applicants, particularly entry level and mid-level career individuals. The agency is 

taking action by implementing the Bipartisan Infrastructure Law firefighter pay, new Wildland Fire 

Occupational Series provisions, strengthening partnerships, and participating in national service 

programs. Over the last two years the agency, working with partners, has invested in thousands of paid 

work experiences for conservation and service corps participants doing mission-critical work, from 

wildfire risk reduction to improving safe and equitable access to the outdoors. These transformational 

experiences can lead to career pathways. For example, in the U.S. Forest Service Southern Region, a 

third of graduated AmeriCorps National Civilian Community Corps (NCCC) members who were on fire 

crews secured wildland firefighting jobs with federal land management agencies, and every team 

member who had interest in a forestry job received one. 

While legislation determines USDA’s authorities, the Department acknowledges the Commission’s 

recommendation for equity authority legislation. USDA is committed to working with the White House 

and Congress to identify opportunities to ensure programs are continuously audited, analyzed, and 

improved. USDA will hold itself accountable to improve the availability and distribution of services and 

programs so that all customers and stakeholders have equitable access to USDA. 

9 
 

 

 

 

 

 

 

 

 

 

 

 

 

USDA is strengthening Tribal Consultations and Nation-toNation relationships in a variety of ways. In February 2023, the 

Forest Service released a historic Tribal Relations Action plan 

on tribal consultation and strengthening nation-to-nation Co-Stewardship of relationships. The action plan seeks to advance tribal relations 

at the agency and provide guidance and assistance to fulfill the National Forests 

Department’s federal trust responsibility, honor treaty 

obligations, and support tribal self-determination. As part of At the 2022 White House Tribal 

this work, the Forest Service also renamed the State & Private Nations Summit, the Forest Service 

Forestry deputy chief area to State, Private & Tribal Forestry. highlighted 11 new signed coThe Forest Service has made co-stewardship of federally stewardship agreements which 

managed lands and waters with Indian tribes a key priority in include a collective investment of 

stewarding the nation’s forests and grasslands, leveraging approximately $4.1 million in FY22. 

existing authorities such as Tribal Forestry Protection Act These co-stewardship agreements, 

(TFPA) 638 project authority to enable Tribes to conduct work along with 60 others involving 45 

on National Forest System (NFS) lands. Through the Joint tribes in various stages of review, 

Secretarial Order promoting increased tribal inclusion in represent a Forest Service FY22 

federally managed lands, USDA and the Department of the investment of approximately $19.8 

Interior are implementing a policy to ensure that tribal million in our shared commitment 

governments have a role in decision-making on public lands to advancing co-stewardship with 

that are their ancestral homelands. This policy enhances the tribes. 

protection of sacred sites and resources and incorporates 

traditional Indigenous values and perspectives in land and 

resource management decisions. As part of the Department’s 

internal organizational planning, USDA will consider the Equity 

Commission’s proposal to elevate the Office of Tribal Relations (OTR) ensuring the level of staffing and 

authority reflect the needs identified. 

USDA agrees with the Equity Commission’s assessment that language is a barrier for linguistically and 

culturally diverse communities trying to access programs and services; language access is a key part of 

ensuring communities are aware of USDA’s programs and services. To improve this, last year alone, 

more than 150 new translated documents were shared on farmers.gov, highlighting priority programs, 

deadlines, and opportunities; Spanish translations of the farm loan discovery and service center locator 

tools were also built. FPAC is in the process of expanding financial partnerships with several of the 

groups listed in the Equity Commission recommendations to expand the number and type of service 

providers necessary to maximize access to culturally appropriate languages. In FY22, FPAC filled 150 

Limited English Proficiency (LEP) requests resulting in 723 products spanning 30 separate languages. 

FPAC currently has a contract in place to provide a full range of translation services in support of Agency 

technical assistance efforts. It also has plans to increase financial partnerships to expand access to 

linguistically and culturally appropriate translation services which may also be used to assist with 

technical support efforts. Work remains to be done as it relates to language access and cultural 

competency; USDA will integrate the Equity Commission’s recommendation into planning and requests 

for funding moving forward. 

The Commission’s recommendation about improving customer experience is timely as FPAC is 

emphasizing its Customer Experience Division (CXD) work to provide a more positive experience for 

customers and employees, increase access to products and services, and improve service delivery. FPAC 

10 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

is now using new processes and technology to complete farmer and rancher requests in fewer steps for 

the farmer and less time to deliver results. This includes expanded use of digital signatures, remote 

workload processing, and a centralized call center staffed with employees who are readily available to 

assist customers virtually. These improvements allow farmers and ranchers to spend less time traveling 

long distances, taking them from their businesses, and provide much-needed flexibility to engage with 

the agency on their schedule. Resources are organized to make searching easier for producers including 

beginning, small-scale, urban, organic, women, youth, immigrant, and LGBTQI+ producers and 

farmworkers. Currently, FPAC is developing a webpage for Tribal producers to increase their awareness 

of USDA programs in general and those programs geared toward them. 

One example of improving process is with the implementation of the Extending Government Funding 

and Delivering Emergency Assistance Act of 2021. FSA and RMA leveraged existing data to streamline an 

application process and get money to producers faster than previous ad hoc programs without 

burdening producers. In collaboration with the FPAC Business Center (BC), FSA and RMA created 

prefilled applications which allowed FSA to quickly assist producers in need. USDA estimates that the 

design of Emergency Relief Program and the Emergency Livestock Relief Program saved over a million 

hours of staff time, and while the exact time savings for producers can’t be calculated, USDA estimates it 

to be equally significant. 

In terms of feedback loops, CXD is distributing three nationwide surveys focused on better 

understanding farmers, ranchers, and forest managers who have not previously worked with FPAC. Each 

of the surveys has been translated into 13 languages and is available for completion online. These 

surveys have been shared with stakeholders as well as other avenues to gather feedback. FPAC is also 

actively seeking feedback through buttons on farmers.gov, FSA, NRCS, and RMA public-facing websites. 

In the first quarter of FY23, 972 responses were received to gather insights regarding the customer’s 

experience on the FPAC platforms. USDA remains committed to continual process improvements and 

will consider the Commission’s specific recommendations in the planning and execution of such 

improvements. 

USDA appreciates the Commission’s recommendations on ways to hold the Department accountable 

and increase transparency through annual compliance reviews and equity audits. USDA endeavors to 

continue to cultivate a learning culture whereby evidence is available, accessible, and used at all levels 

of the organization and is actively working to strengthen its evidence building capacity to better support 

data-driven decisions and program implementation. Specifically, USDA is focused on strengthening data 

collection, performance measure design, and formal program evaluation so these efforts incorporate an 

equity lens in the initial design. The recommendations will be taken into account as USDA adheres to 

authorities moving forward. 

Rebuilding civil rights capabilities is critical and the Office of the Assistant Secretary for Civil Rights 

(OASCR) is setting the stage for a more inclusive future. USDA has committed to fully funding and 

staffing OASCR and agency-level civil rights offices. USDA is also ensuring that executive performance 

plans throughout the Department incorporate equity and civil rights training and compliance. OASCR has 

engaged in multiple listening sessions, conducted a thorough review of all processes, and is working to 

develop organizational assessments and identify process improvements. OASCR has drastically improved 

the timeliness of its Equal Employment Opportunity investigations, decision-making, and appeals. For 

discrimination complaints by USDA program customers, the processing time has been reduced from 

three years to approximately 16 months—the best record in more than a decade, though still requiring 

11 
 

 

 

 

 

 

 

 

 

 

 

 

improvement. In addition, a foreclosure moratorium has been implemented for RD home-loan 

borrowers while those customers’ program complaints are processed. USDA has more to do to be 

accountable in all of its civil rights operations. 

USDA applauds the Commission’s support of Public-Private Partnerships. To have the greatest impact, 

public agencies cannot operate alone; such agreements are critical across all facets of the government. 

USDA is continually looking at ways to improve partnerships and make access more equitable. For 

example, to make it easier to work with the Forest Service, in July 2022, the agency introduced 

significant interim policy changes for partnership and cooperator agreements. The direction removed 

barriers that were preventing equitable access to partnerships and created a process to reduce or waive 

match requirements that are not statutorily required. The new policy waives match requirements for all 

agreements with Tribal governments and allows Forest Service leaders to reduce or waive policy match 

requirements for partners that serve underserved communities. This shift seeks to correct the systemic 

undervaluing of “services and in-kind contributions” of certain partners, such as strong relationships 

with underrepresented and under-resourced communities; innovative public outreach strategies; and 

connections to Indigenous Traditional Ecological Knowledge (ITEK). 

The Commission’s recommendation around focusing on procurement and supplier diversity includes a 

number of actions that will be considered. USDA is currently investing in local procurement and 

leveraging its buying power to ensure small and disadvantaged businesses have a fair shot at being able 

to do business with the Department. In doing so, USDA has exceeded its small business goals to 22.4%. 

Using $1.1 billion of American Rescue Plan and Commodity Credit Corporation funding for the Local 

Food Purchase Assistance Cooperative Agreement Program (LFPA) which uses non-competitive 

cooperative agreements with state and tribal governments to procure and distribute local and regional 

foods and beverages that are healthy, nutritious, and unique to their geographic area. The funding also 

was used for the Local Food for Schools Cooperative Agreement Program (LFS), which strengthened the 

food system for schools by helping to build a fair, competitive, and resilient local food chain, and expand 

local and regional markets with an emphasis on purchasing from underserved producers and processors. 

The Food and Nutrition Service (FNS) is preparing to conduct the 2023 Farm to School Census, which will 

include new questions to identify characteristics of the producers School Food Authorities are 

purchasing from, including minority- or women-owned businesses. Additionally, FNS has worked with 

the National Center for Appropriate Technology and the National Farm to School Network to develop 

and disseminate a producer focused farm to school training curriculum designed to help agricultural 

producers build their capacity to launch or expand sales of their products to Child Nutrition Programs. 

In addition to farm to school efforts, USDA has also announced its Healthy Meals Incentives initiative 

under which four non-governmental organizations will be selected by FNS to manage funds for the 

School Food System Transformation Challenge. These organizations will award competitive grants to 

support and enhance the food supply chain for K-12 schools and promote innovation by food producers 

and suppliers, including local producers and small and disadvantaged businesses. 

Finally, the proposed rule—Child Nutrition Programs: Revisions to Meal Patterns Consistent with the 

2020 Dietary Guidelines for Americans—will strengthen support for local and domestic foods. USDA 

proposes allowing schools to include locally grown, raised, or caught as a requirement for vendors 

bidding to provide food for their school meals programs. In addition, USDA proposes updating the Buy 

American provision by setting a limit of 5% of total food costs on non-domestic food purchases. 

12 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

How USDA Is Advancing Equity for Farmworkers and Their Families 

While farmworkers have long been the key to the success of 

the nation’s food and agriculture industries, they have been a 

fundamentally neglected population. Farmworkers are 

essential to the nation’s food security, and USDA recognizes 

the critical need to address challenges of labor instability, 

increase labor protections, and provide access to nutrition. 

To address these challenges and the Commission’s 

recommendation to provide financial support to farmworkers, 

in coordination with other federal agencies, USDA is developing 

a pilot program utilizing up to $65 million in funding to provide 

support for agricultural employers in implementing robust 

health and safety standards to promote a safe, healthy work 

environment for both U.S. workers and workers hired from 

Central American countries under the seasonal H-2A visa 

program. The program will address current labor shortages in 

agriculture, expand pathways for migration, and improve 

working conditions for farmworkers. USDA will provide 

opportunities for stakeholder engagement as the program is 

developed. USDA is also partnering with the United Farm 

Workers of America (UFW) through a technical assistance 

cooperative agreement to inform USDA of the challenges faced 

by agricultural workers and to inform development of the pilot 

program. UFW will work with relevant stakeholders, including 

farmers, farmworkers, farmworker advocates, and unions, to 

ensure that the agency benefits from a wide range of views. 

On the farmworker nutrition recommendation, FNS has been 

working to translate its public-facing nutrition assistance 

program materials into Spanish and other languages, including 

the SNAP Eligibility page, a prototype school meals application, 

the Child and Adult Care Food Program (CACFP) Meal Benefit 

Eligibility Form, and Women, Infants, and Children (WIC) 

Breastfeeding Support resources. In 2022, FNS published a 

Non-Citizen Communities webpage that provides information 

on what FNS programs support eligible non-citizens and family 

Farm and Food 

Workers Relief 

Program (FFWR) 

The Farm and Food Workers Relief 

Grant Program provides 

Consolidated Appropriations Act 

funds to provide grants to State 

agencies, Tribal entities, and 

nonprofit organizations with 

experience in providing support or 

relief services to farmworkers or 

meatpacking workers. Highlights 

from 2022 include: 

• $700 million in grants made 

available to provide relief to at 

least 1 million farmworkers, 

meatpacking workers, and 

front-line grocery workers who 

incurred pandemic-related 

health and safety costs. 

• 14 non-profit organizations and 

one tribal entity were awarded 

grant funding to administer the 

FFWR program. 

members, and FNS plans to develop a SNAP-specific non-citizen 

page in the future. 

For The Emergency Food Assistance Program (TEFAP), FNS is making $100 million in grant funding 

available to expand the program in underserved areas. Grant funds may be used to translate program 

materials into additional languages. 

Furthermore, FNS is encouraging States to conduct outreach to inform low-income households of all 

communities, including farmworkers, about the opportunity to apply for SNAP. In FY 2023, 44 States are 

conducting SNAP outreach activities based on FNS-approved outreach plans. 

13 
While USDA has made significant strides to improve the living and working conditions for farmworkers 

and their families, USDA recognizes and validates the recommendations of the Equity Commission that 

there is more to be done. USDA is currently exploring the feasibility of the recommendations that 

address the need for farmworkers to be adequately recognized within intergovernmental processes, 

programs, services, funding, and policies. 

14 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

How USDA Is Advancing Equity for Research and Extension Programs 

USDA recognizes the documented decline in federal investment 

in agricultural research, which directly impacts the number of 

college graduates available to meet private and public sector 

employer needs across disciplines. According to National “From Learning to Institute of Food and Agriculture (NIFA)-supported research 

published by Purdue University in the 2022-2025 Employment Leading” Program 

Outlook Report Summary, employer demand for college 

graduates with degrees and expertise in food, agriculture, In 2022, USDA announced $250 renewable natural resources and the environment (FARNRE) will million for the “From Learning to continue to exceed the number of available graduates. Leading: Cultivating the Next 

Generation of Diverse Food and 

The Department appreciates the Commission’s Agriculture Professionals” program 

recommendations to invest in and advance federal agricultural to Create Career Development research, development, and deployment. USDA understands Opportunities for Next Gen Scholars that the investments the Department makes will define at Minority-Serving Institutions. This innovation for decades to come. To best support producers and competitive funding opportunity is communities as they face new and evolving challenges, USDA is aimed at attracting, inspiring, and aware that it must ensure that its research arm is flexible, retaining diverse and talented nimble, and working on timely and relevant research and data students at eligible minority-serving collection. Additionally, USDA recognizes the value of investing institutions for careers in food, in inclusion, diversity, and inspiring future generations through agriculture, and related disciplines, formal and informal learning. As part of Justice40, USDA’s with an emphasis on federal Research, Education, and Economics agencies are investing in government sector employment. academic scholarships, career development support, and 

research projects with minority-serving land grant partners that 

support the next generation of leadership and strong 

agricultural science careers. With funding and authorities 

provided by the American Rescue Plan, USDA made $250 million 

available to enable Minority-Serving Institutions to create career development opportunities in 

agriculture for next generation scholars. This competitive funding is necessary for attracting, inspiring, 

and retaining diverse and talented students for careers in food and agriculture, and careers at USDA. 

The program application window closed in late December and applications are currently under review 

with announcement of awardees expected by Summer 2023.This also establishes a foundation and 

model on which, in partnership with Congress, USDA can make changes that enable USDA internship, 

fellowship, and other professional development experiences to become food and agriculture career 

opportunities for next generation scholars and professionals. 

USDA also invested $40 million for workforce development and training to build a pipeline of welltrained workers to meet the demand for both current processors and increased independent processing 

capacity. The primary investment will be through competitive grants to support workforce training at 

community, junior, and technical colleges with programs specifically for meat and poultry processing. 

NIFA has systematically evaluated and implemented plain-language improvements to its RFAs that 

encourage collaborations with minority serving agricultural colleges and universities. NIFA included plain 

language in its RFAs for Advancing Diversity, Equity, Inclusion, and Accessibility. NIFA has also been 

15 
 

 

 

 

 

working on a cooperative agreement for implementation in FY23 with the Southern Regional Rural 

Development Center at Mississippi State University to pilot a team-based, dialogue-to-change process, 

that, once developed, can be used to expand Extension and Research programming to marginalized 

communities. 

Through the Food and Agricultural Science Enhancement (FASE) Grants, NIFA aims to provide 

competitive grants that strengthen science capabilities in research, education, and/or extension 

programs for FASE eligible institutions. FASE Grants are designed to help institutions develop 

competitive projects, and to attract new scientists and educators into careers in high-priority areas of 

national need in agriculture, food, and environmental sciences. FASE Grants provide support for Preand Postdoctoral Fellowships, New Investigators, and Strengthening Grants. FASE Grants consist of New 

Investigator Grants, Pre- and Postdoctoral Fellowship Grants, and Strengthening Grants. Strengthening 

Grants are further divided into Sabbatical Grants, Equipment Grants, Seed Grants, Strengthening 

Standard Grants, Strengthening CAP (Coordinated Agricultural Project) Grants, and Strengthening 

Conference Grants. Fifteen percent of NIFA’s flagship Agriculture & Food Research Initiative (AFRI) 

funding is set aside for Strengthening Grants and Pre and Postdoctoral Fellowship Grants. Additionally, 

NIFA has successfully utilized cooperative agreements for targeted programs that will benefit 

stakeholders and help USDA serve better. 

16 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

How USDA Is Advancing Equity for Families Needing Food Assistance 

FNS leverages its 15 nutrition assistance programs to ensure 

children, income-eligible individuals, and families have equitable 

access to healthy, safe, and affordable foods that promote 

optimal health and well-being, while building a more resilient 

food system. FNS accomplishes this by partnering with more 

than 175 States, U.S. Territories, and Tribal organizations that 

operate federal nutrition programs. In FY22, these programs 

served one in four Americans. 

In alignment with the Commission recommendation, the 

Department is committed to nutrition security and reducing 

barriers to access. USDA recognizes that long standing disparities 

in diet-related diseases are rooted in structural racism and 

require collaboration beyond FNS. Therefore, USDA is working 

with federal partners and stakeholders across the country to 

meet the goals of the White House Conference on Hunger, 

Nutrition, and Health to end hunger and reduce diet-related 

diseases and disparities. The Biden-Harris Administration’s 

National Strategy, unveiled ahead of the conference, provides a 

roadmap for actions that the federal government will take 

administratively, common sense legislative proposals, and a call 

to action for how non-government entities can bring about the 

changes necessary to meet the goals. As part of the National 

Strategy, the Administration reaffirmed its support for legislative 

proposals to eliminate prohibitions for formerly incarcerated 

individuals and to support granting territories the option to 

transition from current block grants to the Supplemental 

Nutrition Assistance Program (SNAP). 

FNS is also investing in outreach, innovation, and program 

modernization efforts in the Special Supplemental Nutrition 

Program for Women, Infants, and Children (WIC) to increase WIC 

participation and retention and reduce disparities in program 

delivery. As part of this work, FNS is supporting outreach and 

community-level engagement through the WIC Community 

Innovation and Outreach (CIAO) Cooperative Agreement. CIAO 

SNAP Modernization 

Efforts 

• 49 states plus DC can now 

provide 99% of recipients 

access to online purchasing. 

• In November 2022, 4 million 

SNAP households shopped 

online – up from 35,000 in 

March 2020. 

• FNS launched an online ecommerce project to allow 

farmers markets to accept 

SNAP payments online. 

• FNS awarded a grant that 

has enabled approximately 

3,000 farmers to accept 

SNAP payments through 

on-site mobile devices. 

• Working with smaller and 

independent stores to 

expand online shopping, 

FNS provided a $5 million 

award to National Grocers 

Association Foundation to 

walk smaller retailers 

through the implementation 

process. 

will support state and local partnerships to expand outreach to 

underserved populations and test new ways of conducting 

outreach. Through the cooperative agreement, FNS will facilitate technical assistance and at least two 

rounds of grant funding to support innovative WIC outreach projects. FNS will then identify effective 

strategies implemented within the grant-funded projects and use these learnings to inform an outreach 

framework for WIC operators and partners. 

Additionally, in February 2023, FNS and NIFA announced an investment of $750,000 to support the 

development of the public health workforce for WIC. This joint agency initiative is designed to cultivate 

17 
 

 

 

 

 

 

 

 

 

 

 

comprehensive and sustained solutions to increase cultural competency and culturally responsive care 

in WIC, in turn increasing participation in the program and improving the health of participants. The 

initiative also intends to leverage the experience and expertise of FNS and NIFA, including NIFA’s 

partnerships with land-grant universities and colleges, to strengthen the diversity and cultural 

competency of the WIC workforce to better serve all WIC families. 

With respect to the recommendation about re-evaluation of the Thrifty Food Plan (TFP), USDA is 

continuing research related to the congressional mandate to re-evaluate the program every five years to 

reflect the needs of today’s consumers. During FY23, FNS will begin a systematic review on food waste 

and a study on alternatives to the current TFP optimization model. The latest TFP report for the 

mainland U.S. was published in 2021 and the next report will be published in 2026. In the interim, USDA 

adjusts the cost of the TFP for inflation each month using the U.S. Bureau of Labor Statistics’ Consumer 

Price Index. By law, the cost of the TFP—specifically, the cost of the June TFP—serves as the basis for the 

maximum SNAP benefit allotments in the following Federal fiscal year beginning each October 1st. 

The Department supports the Commission’s recommendation on having a customer-centered design of 

SNAP. As is the case with all USDA programs and services, customer-centered service is a primary goal 

of FNS. Through the management evaluation process, FNS conducts ongoing monitoring of State 

agencies to ensure that SNAP is administered in a way that treats applicants and participants with 

dignity and respect. FNS requires State agencies to take reasonable steps to ensure that limited English 

proficiency households or applicants have meaningful access to programs, services, and benefits. These 

steps include providing bilingual program information and certification materials, as well as 

interpretation services. FNS also ensures that State agencies provide equal access for people with 

disabilities by providing auxiliary aids and services when needed to ensure effective communication. 

FNS is in the process of engaging in proactive and interactive training of SNAP-authorized businesses. 

This training has long been available in English and Spanish, but more recently, notices to the authorized 

SNAP business community have included translations in Arabic, Haitian, and both Traditional and 

Simplified Chinese. Another recent upgrade is the FNS grant for a SNAP Electronic Benefits Transfer 

(EBT) Modernization Technical Assistance Center (SEMTAC). The SEMTAC team is charged with providing 

technical assistance to retailers interested in accepting SNAP payments online, with a specific focus on 

small retailers. SEMTAC will both simplify and translate materials and processes required of retailers 

who wish to pursue this payment option and assist retailers in assessing and making related business 

decisions. 

USDA agrees with the Commission’s request to review the nutrition programs. For example, FNS 

recognizes the importance of encouraging school meals that meet cultural food preferences and 

ensuring the nutrition standards allow them. This priority is reflected in the recently proposed 

standards, Child Nutrition Programs: Revisions to Meal Patterns Consistent with the 2020 Dietary 

Guidelines for Americans. The proposed rule to update school meal nutrition standards marks an 

important step toward nutrition equity, which is not just equal access to nutritious foods but to foods 

that reflect cultural preferences. For example, the whole grain-rich proposal would allow schools to 

occasionally serve white rice or non-whole grain-rich tortillas, while still promoting whole grain-rich 

foods throughout the school week. 

FNS published a proposed rule on November 21, 2022, to revise regulations governing the WIC food 

packages. The proposed changes are intended to provide WIC participants with a wider variety of foods 

18 
 

 

that align with the latest nutritional science and provide WIC State agencies with greater flexibility to 

prescribe and tailor food packages to accommodate participants’ special dietary needs and personal and 

cultural food preferences and support more equitable access to supplemental foods. 

In addition, FNS is investing in improving the WIC shopping experience through grantmaking and 

outreach. The agency will also research disparities in access to WIC-authorized vendors to inform 

ongoing work, including to support WIC State agencies in creating opportunities for businesses to 

participate as authorized vendors in the WIC Program. 

19 
 

 

 

----

What’s Next for USDA 

USDA can only succeed in its mission to help America thrive if it ensures that the Americans who need 

its services most receive them. Equity is not an add-on or extra; it is central to the Department’s 

mission: 

To serve all Americans by providing effective, innovative, science-based public policy leadership 

in agriculture, food and nutrition, natural resource protection and management, rural 

development, and related issues with a commitment to deliverable equitable and climate-smart 

opportunities that inspire and help America thrive. 

USDA thanks the Equity Commission for contributing so vitally to that mission and looks forward to 

ongoing engagement with the Commission to identify opportunities to advance equity for all. 

20