For other versions of this document, see http://wikileaks.org/wiki/CRS-RL33520
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Prepared for Members and Committees of Congress
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Congress has completed action on omnibus legislation to replace expiring law governing the
programs and policies of the U.S. Department of Agriculture (USDA). The new Food,
Conservation, and Energy Act of 2008 (P.L. 110-246, H.R. 6124) contains provisions on
marketing, crop insurance and disaster assistance, protection against pests and diseases, export
promotion, research, and domestic food assistance, all of which are important to the
competitiveness of the specialty crop sector of U.S. agriculture. The sector includes fruit,
vegetable, tree nut, and nursery crop producers, processors, manufacturers, wholesalers,
importers, and exporters.
Although specialty crops are not eligible for direct support under USDA's farm commodity price
and income support programs, the policies that Congress sets for the those programs affect them.
Chief among these policies is one that largely restricts commodity program participants from
planting fruits and vegetables on program base acres. Specialty crop interests long have
maintained that the provision is essential to protect the sector from the economic damage that
could occur if additional acres of vegetables (in particular) suddenly came into production. The
Food, Conservation, and Energy Act of 2008 extends the planting restriction through FY2012, but
authorizes a pilot program in seven midwestern states to allow planting of fruits and vegetables--
exclusively for processing--on base acres.
P.L. 110-246 also includes, for the first time in the history of the farm bill, a separate title
covering horticultural (specialty) and organic crops (Title X). The title provides substantial
mandatory funding over the life of the farm bill and beyond for several major new and continuing
programs. The key provisions include (1) reauthorization of the program making block grants to
states for research, marketing, and promotion projects benefitting specialty crops, providing $466
million over 10 years in mandatory funds; (2) reauthorization of the program of cost-share
assistance to producers for organic certification, with a one-time transfer of $22 million in
mandatory funds; (3) expansion of the current Farmers' Market Promotion Program to increase
direct farmer-to-consumer marketing opportunities, providing $33 million in mandatory funds;
(4) establishment of a federal/state pest and disease detection and control program with $377
million in mandatory funds over 10 years; and (5) creation of a network of nurseries to grow pest-
and disease-free plant stocks for horticultural crops, with $20 million in mandatory funds. The
title also contains a section authorizing $10 million annually in appropriations for research on
colony collapse disorder in honeybees.
The nutrition title of P.L. 110-246 contains provisions intended to increase the availability of
fresh fruits and vegetables in the school lunch and other domestic nutrition assistance programs.
For greater detail on these provisions, see CRS Report RL33829, Domestic Food Assistance: The
Farm Bill and Other Legislation in the 110th Congress, coordinated by Joe Richardson.
This report will not be updated.
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Introduction ..................................................................................................................................... 1
Sector Snapshot......................................................................................................................... 1
Selected Issues and Their Status in the Enacted 2008 Farm Bill..................................................... 4
Planting Flexibility.................................................................................................................... 4
In the Enacted Bill .............................................................................................................. 4
Government Purchases for Nutrition Programs ........................................................................ 5
In the Enacted Bill .............................................................................................................. 5
Market Expansion Through Promotion Programs..................................................................... 5
In the Enacted Bill .............................................................................................................. 5
Disease and Pest Protection ...................................................................................................... 6
In the Enacted Bill .............................................................................................................. 6
Research .................................................................................................................................... 7
In the Enacted Bill .............................................................................................................. 7
Organic Agriculture................................................................................................................... 7
In the Enacted Bill .............................................................................................................. 7
Additional Provisions................................................................................................................ 8
Figure 1. Value of Vegetables, Melons, Potatoes, and Sweet Potatoes as Percent of Total
Market Value of Agricultural Products Sold: 2002 ...................................................................... 2
Figure 2. Value of Fruits, Tree Nuts, and Berries as Percent of Total Market Value of
Agricultural Products Sold: 2002 ................................................................................................. 3
Figure 3. Value of Nursery, Greenhouse, Floriculture, and Sod as Percent of Total Market
Value of Agricultural Products Sold: 2002................................................................................... 3
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Appendix. Major Provisions of the Enacted 2008 Farm Bill (P.L. 110-246) Compared
with Previous Law and House- and Senate-Passed Bills (H.R. 2419) ......................................... 9
Author Contact Information .......................................................................................................... 16
Acknowledgments ......................................................................................................................... 16
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Specialty crops (fruits, vegetables, tree nuts, and nursery crops) are not eligible for direct support
under USDA's farm commodity price and income support programs. Nonetheless, the policies
that Congress sets for those programs significantly affect the specialty crop sector's economic
well-being. Federal policies on trade, conservation, credit, marketing programs, domestic food
assistance, and research also all affect the specialty crop sector.1
Congress sets the policies in these areas, for the most part, in an omnibus, multi-year authorizing
law commonly called the "farm bill." In May 2008, Congress passed a new farm bill to replace
the previous one, the Farm Security and Rural Investment Act of 2002 (P.L. 107-171), which
expired in 2007 (Congress extended it until the new bill could be enacted).
Some stakeholders and policymakers called for specialty crop issues to occupy a larger role in
farm bill policy discussions than in the past. They noted that the traditional farm commodity
support programs are under pressure from constraints on the federal budget, as well as from
developments in existing trade obligations and from negotiations on further trade agreements.2
Policies covering U.S. agriculture more comprehensively could provide a way to address those
pressures while increasing U.S. competitiveness, they argued.
Several major legislative proposals focusing on policies and programs of importance to the
specialty crop sector were introduced in the 110th Congress in preparation for the 2007 farm bill
debate. These bills included H.R. 1600 (Cardoza), the EAT Healthy America Act; H.R. 1551
(Kind)/S. 919 (Menendez), the Healthy Farms, Foods, and Fuels Act; and S. 1160 (Stabenow), the
Specialty Crops Competition Act, among others. The Administration also proposed several policy
reforms affecting specialty crops as part of the comprehensive 2007 farm bill proposal that it
released in February 2007. A number of stakeholder groups also issued position statements
concerning the specialty crops issues they wanted to see addressed in the new farm bill.
Sales of fruits, vegetables, and tree nuts account for nearly one-third of U.S. crop cash receipts
and one-fifth of U.S. agricultural exports, according to USDA's Economic Research Service
(ERS). When floriculture, greenhouse, and nursery crops are included, specialty crops account for
approximately 50% of all U.S. cash receipts of farm crops.3
Despite their relatively large share of crop receipts, specialty crops occupy only about 3% of U.S.
harvested cropland. Although certain states and regions are predominant, nearly every state has
some commercial specialty crop production within its borders. Figure 1, Figure 2, and Figure 3
illustrate the distribution, nationwide, of areas producing fruits, vegetables, tree nuts, and nursery
1
For background information on all federal programs affecting specialty crops, see CRS Report RL32746, Fruits,
Vegetables, and Other Specialty Crops: A Primer on Government Programs, by Jean M. Rawson.
2
For information on the relationship between international trade negotiations and U.S. farm policy, see CRS Report
RS21905, Agriculture in the WTO Doha Round: The Framework Agreement and Next Steps, by Charles E. Hanrahan.
3
Fruit and Vegetable Backgrounder (USDA, Economic Research Service, April 2006) is the source for all the
statistical information in this section. It is available online at http://www.ers.usda.gov/.
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crops, shown as percentages of the total market value of agricultural products sold (including
livestock).4
About three-fourths of growers are considered specialized, which means that they receive at least
half of their gross value of production from the sale of fruits, vegetables, tree nuts or horticultural
crops. According to ERS survey data, specialized farms account for 95% of the total value of U.S.
specialty crop production, although more than half of them have annual sales of less than
$250,000 and identify off-farm income as their primary means of support. Specialized farms may
produce one or two other commodities in addition to their specialty crop, according to ERS, and
about 15% of them also participate in the major commodity support programs.
The remaining 5% of the value of U.S. specialty crop production comes from non-specialized
fruit and vegetable farms, which may produce as many as four other commodities (often
including livestock) besides their specialty crop. Nearly half of these farms grow one or more of
the major commodity crops and participate in the price and income support programs, according
to ERS.
Vegetables, dry beans, and potatoes--for processing--are grown primarily on large-acreage, non-
specialized commercial farms. California is the overwhelming leader in production, but certain
states in the Northeast, Central and Upper Midwest, and Pacific Northwest also are major
producers.
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2002 :dloS stcudorP larutlucirgA fo eulaV tekraM latoT fo tnecreP sa
)120M-20( ecivreS scitsitatS larutlucirgA lanoitaN ,erutlucirgA fo tnemtrapeD .S.U :ecruoS
4
The maps show the value of specialty crops as a percent of total market value of all agricultural products sold,
including livestock. Data from ERS's Fruit and Vegetable Backgounder, cited above in this section, compare specialty
crop values to other crop values.
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2002 :dloS stcudorP larutlucirgA fo eulaV tekraM latoT fo tnecreP sa
doS dna ,erutlucirolF ,esuohneerG ,yresruN fo eulaV. 3 erugiF
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2002 :dloS stcudorP larutlucirgA fo eulaV tekraM latoT
fo tnecreP sa seirreB dna ,stuN eerT,stiurF fo eulaV. 2 erugiF
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The Appendix compares the horticulture and organic production policies set in the 2002 farm bill
(P.L. 107-171) with the provisions in the House- and Senate-passed farm bill (H.R. 2419) and the
enacted Food, Conservation, and Energy Act of 2008 (P.L. 110-246).
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A persistent issue for the specialty crop industry is the status of continuation of a policy set in
previous farm bills that restricts the ability of participants in the farm income and commodity
price support programs to plant fruits and vegetables on acres on which they receive benefits
(base acres). Congress first inserted this provision in the 1996 farm act (P.L. 104-127), after it had
adopted a proposal to allow producers of program crops to respond to market signals and grow
different crops on base acreage. The restriction was extended through 2007 by the 2002 farm bill.
Specialty crop producers, in general, have maintained since 1996 that allowing program crop
producers to switch even small numbers of acres to fruits or vegetables would negatively affect
markets, and thus growers' annual income. In 2005, a World Trade Organization (WTO)
challenge to U.S. farm commodity programs raised questions concerning the use of the planting
flexibility restriction under existing trade commitments.7 Discussion on whether to extend the
restriction in the next farm bill thus has an important trade policy aspect as well as domestic
market aspect.
A number of reports have been issued since late 2006 that examine the possible effects on
domestic fruit and vegetable producers of eliminating the planting restriction. These analyses
suggest that the adverse effects of removing the restriction likely would be small relative to the
overall industry, although there could be larger impacts on individual producers, commodities,
and regions.
The Food, Conservation, and Energy Act of 2008 (P.L. 110-246) maintains the 2002 farm bill
provision restricting the planting of fruits and vegetables on base acres. However, the act
authorizes a pilot project in seven midwestern states that will allow fruits and vegetables--
exclusively for processing--to be planted on 75,000 base acres. USDA is required to evaluate and
report to Congress on the impact the pilot project is having on the price and supply of both fresh
and processed fruits and vegetables.
5
For a comparison of the provisions in P.L. 110-246 with the provisions in the House and Senate bills, and with
previous law, see CRS Report RL34696, The 2008 Farm Bill: Major Provisions and Legislative Action, by Renée
Johnson et al.
6
For detailed analysis of this issue, see CRS Report RL34019, Eliminating the Planting Restrictions on Fruits and
Vegetables in the Farm Commodity Programs, by Renée Johnson and Jim Monke.
7
For more detailed information and analysis of this issue, see CRS Report RS22187, Brazil's WTO Case Against the
U.S. Cotton Program: A Brief Overview, by Randy Schnepf and CRS Report RL33697, Potential Challenges to U.S.
Farm Subsidies in the WTO, by Randy Schnepf.
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USDA directly purchases and then donates a variety of non-price supported commodities,
including fruit, vegetable, and tree nut products, for consumption through domestic nutrition and
food assistance programs. These purchases and donations help groups of nutritionally vulnerable
recipients (such as low-income school children, participants at family child care homes, and
others) to eat a healthy diet and avoid hunger, while also helping to balance supply and demand
for various commodities.
Section 10603 requires USDA to purchase additional fruits, vegetables, and nuts for nutrition
assistance programs, above the traditional purchases of $200 million per year. USDA must
purchase an additional $190 million in FY2008; $193 million in FY2009; $199 million in
FY2010; $203 million in FY2011; and $206 million in FY2012 and thereafter. Section 10101
requires the Secretary to arrange for an independent evaluation of USDA's purchasing process in
order to ensure that the funds are principally devoted to procuring fresh fruits and vegetables.
The enacted bill also creates a new program to provide fresh fruits and vegetables to elementary
schools, replacing a program that began as a pilot project in a limited number of states. The new
program will operate in all states, in those elementary schools that the state designates. The act
provides mandatory funding of $40 million in October 2008; $65 million in July 2009; $101
million in July 2010; and $150 million in July 2011. Funding in future years will be indexed for
inflation. Half of the annual funding will be divided equally among the states, and the remaining
half will be allocated under a formula based on population.
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A key provision of the Specialty Crops Competitiveness Act of 2004 (P.L. 108-465), which was
the first law that Congress passed on specialty crop policies specifically, was the authorization,
through FY2009, of a program of block grants to states to support projects in research, marketing,
education, pest and disease management, production, and food safety. In most states, the state
department of agriculture administers this program. The act authorized $44.5 million in annual
appropriations for the program; Congress appropriated $7 million in each of FY2006-FY2008.
Expansion of this program and an effort to provide mandatory funding for it was a major focus in
the farm bill debate. Specialty crop interests have consistently urged Congress to provide
mandatory funds for the block grant program, arguing that the government should increase its
investment in the sector in light of its value to U.S. agriculture as a whole. However, producer
groups and lawmakers from states where commodity crops predominate were not in favor of
redirecting money to support other programs if it meant reducing the current level of support for
the commodity programs.
Title X of P.L. 110-246 extends the program of block grants to states and provides mandatory
funding for the program totaling $224 million over the five-year farm bill period. Congress did
not redirect commodity program funds to support the block grant program. The House bill would
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have provided $365 million in mandatory funding; the Senate bill would have provided $270
million from FY2008 through FY2011.
The rural development title of P.L. 110-246 reauthorizes and provides $15 million in mandatory
funding for the Value-Added Producer Grants program that was created by the Agricultural Risk
Protection Act of 2000 (P.L. 106-224). The program makes planning grants and provides working
capital for marketing value-added agricultural products. The new act stipulates that 10% of the
funding be set aside for beginning and socially disadvantaged farmers and ranchers, and that
another 10% be reserved to help small and medium-sized farm operations make marketing
alliances with other segments of the supply chain. Organic producers also are eligible to receive
these grants.
The trade title of the conference agreement provides $37 million in mandatory funding over a
five-year period for Technical Assistance for Specialty Crops (TASC), a program that helps
exporters of U.S. specialty crops overcome other countries' non-tariff trade barriers, particularly
those associated with plant pest and disease concerns.
The trade title also maintains mandatory funding for the Market Access Program (MAP) at $200
million annually, and specifies that organically produced commodities are eligible for marketing
assistance. MAP is a cost-share program between USDA and commodity organizations or
agribusinesses to promote U.S. agricultural products overseas.
Stakeholders traditionally have expressed the concern that efforts to identify and mitigate the
effects of existing pest and disease threats and to prevent the importation of new ones need to be
strengthened. H.R. 1600 (the EAT Healthy America Act, introduced in early 2007) included
provisions to establish a new program of cooperative agreements with states to conduct early pest
detection activities, and to return the import and entry agricultural inspection functions to USDA
from the Department of Homeland Security, where they were transferred in 2003. The latter
provision was dropped in both the House and Senate bills, but other significant pest and disease
provisions were retained in the conference agreement.
Title X of P.L. 110-246 establishes a cooperative federal-state program for early pest detection
and surveillance and for threat identification and mitigation. The act provides mandatory funding
of $12 million for FY2009, $45 million in FY2010, and $50 million annually in FY2011 and
FY2012. Bill language prohibits USDA from considering the availability of non-federal funds in
the states' applications for federal funds.
Title X contains additional provisions relating to pest and disease control. Section 10202 provides
$5 million annually in mandatory funds over four years to establish a National Clean Plant
Network to grow pest- and disease-free planting stock for the specialty crop industry. Section
10203 amends the Plant Protection Act (PPA; 7 U.S.C. 7701 et seq.), the act authorizing USDA's
Animal and Plant Health Service's activities on the plant health, to increase the penalties for
violating the PPA, expand the violations for which penalties are assessed, and clarify subpoena
authorities under the PPA.
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In hearings before the farm bill debate, specialty crops producers and trade associations argued
strongly in favor of increasing federal expenditures for specialty crop research. They maintained
that research provides critical support for the industry, without risking challenges under
international trade rules. The EAT Healthy America Act (H.R. 1600) and the Administration's
farm bill proposal called for using mandatory funds to substantially increase agricultural research
on the production and economics of specialty crops.
The research title of P.L. 110-246 (Title VII) provides $230 million in mandatory funds for a
specialty crop research initiative over the five-year farm bill period and also authorizes annual
appropriations of $100 million. This amount is greater than that provided in the House and Senate
bills ($215 million and $80 million, respectively.) Five subject areas for research--crop
improvement, identification of pest and disease threats, production efficiency, improved
technologies, and prevention and detection of food safety hazards--are identified to each receive
at least 10% of the grant funds. Recipients must commit to providing a 100% match, either in
funds or in-kind support.
The National Organic Certification Cost-Share Program, which was established by the 2002 farm
bill, authorized a one-time, mandatory transfer of $5 million from the Commodity Credit
Corporation (CCC) with which USDA helped to defray the costs of producers and handlers
seeking organic certification. There was a $500 maximum on the amount a producer could
receive, and the federal share could not account for more than 75% of a producer's total costs.
The transfer occurred in FY2002 and remained available until fully expended, which was in fall
2006. Certain of the farm bill proposals that were introduced or released early in 2007 called for a
substantial expansion of this program. Some early farm bill proposals also contained a provision
to make technical assistance available to farmers wanting to convert their operations from
conventional to organic practices, and to reimburse transition costs up to $10,000 per farm or
handling operation.
Section 10301 extends the certification cost-share program, provides a one-time transfer of $22
million in mandatory funds to be available until expended, and raises the maximum amount that a
producer or handler can receive to $750. Conferees deleted the requirement that the federal share
of a producer or handler's certification not exceed 75%. The enacted bill also provides $5 million
in mandatory funding to improve USDA's collection of segregated data and survey information
about the price, production, and marketing of major organically produced commodities. The bill
contains a detailed list of required data sets, studies, and market surveys, and authorizes an
additional $25 million in appropriations over the five-year farm bill period to maintain support for
these activities.
The enacted bill adds language to the conservation title (Title II) to establish that producers are
eligible for technical assistance under the Environmental Quality Incentives Program (EQIP) for
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converting their farm to organic production. Efforts to authorize a $50 million program in the
farm bill specifically for this purpose were not successful. The bill increases mandatory funding
for all activities under EQIP by $3.4 billion.
The 1990 farm bill established an organic agriculture research and extension initiative supported
by $3 million annually in mandatory funding. The enacted bill provides $78 million in mandatory
funds over the FY2009-FY2012 period for this initiative, and also authorizes annual
appropriations of $25 million.
The enacted bill contains a number of provisions addressing other issues of importance to the
horticulture and organic agriculture communities. Among these are provisions to:
· increase the amount that orchardists and nursery tree growers can receive in
payments for weather-related losses under the Tree Assistance Program from
$75,000 to $100,000;
· authorize increasing appropriations for USDA's National Organic Program
Office, starting at $5 million in FY2008 and rising to $11 million in FY2012, for
the purpose of improving program efficiency and regulatory oversight activities;
· expand the Farmers' Market Promotion Program with $33 million in mandatory
funds over the five-year term of the farm bill;
· establish a Healthy Food Enterprise Development Center with $5 million in
mandatory funds to make competitive grants to entities that will increase low-
income families' access to healthy affordable foods;
· authorize $1 million in annual appropriations for a program to educate consumers
and handlers of fresh produce on science-based sanitary handling methods;
· authorize $9 million in annual appropriations to support market news and price
information on specialty crops; and
· authorize $10 million in annual appropriations for grants to conduct research on
honeybee colony collapse disorder.
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eht nihtiw retneC tnempoleveD esirpretnE dna noitamrofni gnidivorp ,retneC seiduts ytilibisaef troppus ot margorP
dooF nabrU yhtlaeH eht rof egaugnal ecalp tnempoleveD esirpretnE dooF yhtlaeH esirpretnE nabrU dooF yhtlaeH
ot segnahc htiw noisivorp etaneS stpodA a hsilbatse ot margorp tnarg a sezirohtuA eht deltitne margorp tnarg a sehsilbatsE .noisivorp elbarapmoc oN
]3381 .ceS[ .krowemarf tnemeganam
ksir cigetarts a poleved ot dna
,seussi edart yratinasotyhp dna yratinas
ot noitnetta esaercni ot evitatneserpeR
.noisivorp etaneS seteleD edarT .S.U eht dna ADSU segaruocnE .noisivorp elbarapmoc oN .noisivorp elbarapmoc oN
]1381 .ceS[ .eussi eht gnisserdda
rof ygetarts a eraperp ot dna sreirrab
edart ngierof gnirewol fo sporc ytlaiceps
no tcapmi eht etagitsevni ot )OAG( eciffO
.noisivorp etaneS seteleD ytilibatnuoccA tnemnrevoG eht seriuqeR .noisivorp elbarapmoc oN .noisivorp elbarapmoc oN
]30401 .ceS[ .stnarg rof
elbigile eb ot sreirrac ro sreppihs ,srecudorp .stekram ot sporc ytlaiceps gnitropsnart
fo snoitazinagro lanoiger/etats/lanoitan wolla ]2481 .ceS[ .secnereffid lacinhcet evorpmi ot seititne etavirp dna
ot segnahc htiw noisivorp esuoH stpodA ronim htiw tub ,llib esuoH eht ot ralimiS cilbup fo yteirav a ot stnarg sezirohtuA .noisivorp elbarapmoc oN
]60101 .ceS[ .)2102YF-1102YF( yllaunna
noillim 01$ ;)0102YF-9002YF( yllaunna ]5003 .C.S.U 7[ .snoitazinagro
noillim 5$ ;)8002YF( noillim 3$ :gnidnuf ]40401 .ceS[ .)2102YF-1102YF( tiforpnon dna stnemnrevog lacol
yrotadnam yficeps ot dna ;stekram 'sremraf ]2181 .ceS[ .2102YF noillim 01$ dna )0102YF-8002YF( ot stnarg rof snoitairporppa launna
)642-011 .L.P( )9142 .R.H( tnemdnemA )9142 .R.H( yciloP/waL roirP
lliB mraF 8002 detcanE etutitsbuS dessaP-etaneS lliB dessaP-esuoH
]A30101 .ceS[ .sesuohneerg dna snedrag
elbategev dna tiurf cinagro etarepo dna
esahcrup ot stcejorp esuohneerg dna
gninedrag nabru pleh ot )c216 .C.S.U 7(
.noisivorp esuoH seteleD .noisivorp elbarapmoc oN sdnuf 23 noitceS gnisu stnarg sedivorP .noisivorp elbarapmoc oN
]4281 .ceS[ .2102YF ni ]2256 .C.S.U 7[ .margorP cinagrO
]30301 .ceS[ .yrassecen noillim 11$ ot gnisir dna 8002YF ni noillim lanoitaN eht rof yrassecen sa smus
era sa smus lanoitidda hcus edivorp 5$ ta gnitrats ,PON eht rof slevel gnidnuf hcus fo snoitairporppa sezirohtua 0991
ot segnahc htiw noisivorp etaneS stpodA launna dezirohtua desaercni seificepS .noisivorp elbarapmoc oN fo tcA noitcudorP sdooF cinagrO ehT
]1047 .C.S.U 7[ .cinagro
%001 era snoitarepo esohw srecudorp
]2281 .ceS[ .noitpmexe eht eviecer rof ,selbategev dna stiurf nworg
ot PON eht rednu cinagro deifitrec mraf -yllanoitnevnoc rof sredro gnitekram
.noisivorp etaneS seteleD rieht fo trap evah ohw srecudorp swollA .noisivorp elbarapmoc oN rednu detpmexe era stnemssessA
]9037
.ceS[ .margorP tnempoleveD rehcnaR
dna remraF gninnigeB eht rednu esoprup ]30301 .ceS[ .noitcudorp cinagro ot
.eltit noitavresnoc eht fo ]1052 .ceS[ siht rof stnarg sezirohtuA ]1632 .ceS[ lanoitnevnoc morf trevnoc ot gnikees
margorp PIQE eht rednu gnimraf cinagro ot .noitcudorp cinagro ot trevnoc ot gnikees srecudorp ot stnarg gnirahs-tsoc
gninoitisnart sremraf ot ecnatsissa lacinhcet srecudorp ot )PIQE( margorP sevitnecnI dna ecnatsissa lacinhcet edivorp ot llib
gnidivorp fo laog eht gnisserdda egaugnal ytilauQ latnemnorivnE eht rednu gnirahs mraf eht fo efil eht revo snoitairporppa
sedulcni tub ,noisivorp esuoH seteleD -tsoc dna ecnatsissa lacinhcet rof sedivorP ot tcejbus noillim 05$ sezirohtuA .noisivorp elbarapmoc oN
]20301 .ceS[ .stcudorp
larutlucirga decudorp yllacinagro ot
gnitaler secirp fo gnitroper evisneherpmoc
etubirtsid dna tcelloc ot SMA ot detacolla eb
gnidnuf ni noillim 5.3$ taht gniyficeps rehtruf
,)2102-8002YF( noillim 52$ fo snoitairporppa
fo noitazirohtua lanoitidda na htiw
,gnidnuf yrotadnam ni noillim 5$ sedivorP
.seettimmoC erutlucirgA etaneS/esuoH ]20301 .ceS[
eht ot troper s'ADSU fo stnetnoc eht yficeps ]1281 .ceS[ .ksir ssol porc dna ,gnicirp ,gnitekram ]c5295
ot dna ,stnemeriuqer tnempoleved yevrus .sisylana dna noitcelloc atad detagerges ,noitcudorp cinagro no sisylana .C.S.U 7[ .gnitekram dna noitcudorp
dna ,sisylana ,noitcelloc atad s'ADSU yfiralc rof noillim 5$ fo refsnart emit-eno dna noitcelloc atad troppus ot sdnuf cinagro no atad detagerges peek
ot segnahc htiw noisivorp etaneS stpodA a sedivorp dna llib esuoH eht ot ralimiS CCC yrotadnam ni noillim 3$ sedivorP ot ADSU deriuqer llib mraf 2002 ehT
]10301 ]4251 .C.S.U
)642-011 .L.P( )9142 .R.H( tnemdnemA )9142 .R.H( yciloP/waL roirP
lliB mraF 8002 detcanE etutitsbuS dessaP-etaneS lliB dessaP-esuoH
]40201 .ceS[ hcae no noitca ekat ot ,tnemtcane retfa eht rednu seitivitca s'ADSU sezirohtua
.noitacifidom htiw ,noisivorp etaneS stpodA shtnom 81 naht retal on ,ADSU seriuqeR .noisivorp elbarapmoc oN ].qes te 1077 .C.S.U 7[ APP ehT
]21011 .ceS[ .eltit kcotsevil
eht ni tcA noitcetorP htlaeH laminA eht ]71011 .ceS[ .ADSU
ot edam erew stnemdnema lacitnedI .]30201 yb derevocsid yllaitini si noitaloiv eht etad
.ceS[ .sessol cimonoce rof noitasnepmoc eht retfa sraey 5 naht retal on deredisnoc
fo noisivorp eht yaled ot hcnarb eb ot APP eht fo noitaloiv a gnidrager .sesaesid dna stsep
evitucexe eht fo ytiliba eht seifidoM .APP gnideecorp ro tius ,noitca na seriuqeR evisavni etacidare dna fo daerps eht
eht rednu ADSU fo seitirohtua aneopbus .msinagro deifidom yllaciteneg a gnivlovni tneverp ot srehto dna seitilacol ,setats
yfiralc ot dna ,APP eht fo noitaloiv luflliw yna gnideecorp elgnis a ni detacidujda noitaloiv htiw etarepooc ot )SIHPA( ecivreS
revoc ot seitlanep eht dnapxe ot ,snoitatimil hcae rof 000,000,1$ ;gnideecorp elgnis a noitcepsnI htlaeH tnalP dna laminA
fo etutats eht ot egnahc eht ekirts ni detacidujda noitaloiv hcae rof 000,005$ s'ADSU sezirohtua ].qes te 1077 .C.S.U
ot segnahc htiw noisivorp etaneS stpodA :swollof sa APP eht ni seitlanep seifidoM .noisivorp elbarapmoc oN 7[ )APP( tcA noitcetorP tnalP ehT
]40401
.ceS[ .kcots gnitnalp eerf-esaesid dna
]20201 .ceS[ -tsep niatbo nac yrtsudni porc ytlaiceps
.)2102-9002YF( yllaunna noillim 5$ :gnidnuf eht erehw krowteN tnalP naelC
yrotadnam seificepS .margorp eht tuo yrrac lanoitaN a etaerc ot ,sdnuf yrotadnam
ot htiw tlusnoc llahs ADSU taht seititne ni yllaunna noillim 02$ ot noitidda
fo tsil eht ot snoitutitsni ACGLN dda ot ]1581 .ceS[ .secnereffid ni ,2102YF hguorht sdnuf yrassecen
tnemdnema na htiw noisivorp etaneS stpodA lacinhcet htiw ,llib esuoH eht ot ralimiS fo noitairporppa eht sezirohtuA .noisivorp elbarapmoc oN
]20201 .ceS[ .retfaereht yllaunna noillim
1$ fo noitairporppa eht dna ,iiawaH
,olanamiaW ni ytilicaf gniraer ylf tiurf
elirets a fo noitcurtsnoc eht rof noillim
.noisivorp esuoH seteleD .noisivorp elbarapmoc oN 51$ fo noitairporppa eht sezirohtuA .noisivorp elbarapmoc oN
]10201 .ceS[ .)2102YF( noillim 05$
dna ;)1102YF( noillim 05$ ;)0102YF( noillim ]10201 .ceS[
54$ ;)9002YF( noillim 21$ :sdnuf yrotadnam .)2102YF(
seificepS .smargorp ycnegreme htlaeh dna noillim 07$ ot gnisir ,)8002YF(
lamina rof elur gnirahs-tsoc a fo lavorppasid noillim 01$ ta gnitrats sdnuf yrotadnam
sserpxe dna ;noitacilppa na gniredisnoc sedivorP .sgniht rehto gnoma ,snalp
nehw srotcaf ksir redisnoc ot ADSU tcerid ])f(10121 .ceS[ .)2102YF( noillim 46$ noitca etaerc dna seitivitca ecnallievrus
;sdnuf laredefnon gniredisnoc morf ADSU ot gnisir ,)8002YF( noillim 01$ ta gnitrats dna noitceted tsep ylrae tcudnoc
tibihorp ;ssecorp noitacilppa eht ebircsed sdnuf yrotadnam sedivorP .secnereffid ot stnemtraped erutlucirga etats
ot segnahc htiw noisivorp etaneS stpodA lacinhcet htiw ,llib esuoH eht ot ralimiS htiw margorp evitarepooc a sehsilbatsE .noisivorp elbarapmoc oN
lortnoC esaesiD dna tseP
)642-011 .L.P( )9142 .R.H( tnemdnemA )9142 .R.H( yciloP/waL roirP
lliB mraF 8002 detcanE etutitsbuS dessaP-etaneS lliB dessaP-esuoH
launna elbaliava ot noitidda ni ,dednepxe
litnu elbaliava niamer ot )2102-8002YF( ]1181 .ceS[ .sporc ytlaiceps no noitamrofni rof swen tekram fo noitanimessid
yllaunna noillim 9$ snoitairporppa ezirohtua ecirp dna swen tekram troppus dna noitcelloc eht troppus ot 2102YF
ot segnahc htiw noisivorp etaneS stpodA ot sdnuf ni yllaunna noillim 9$ sezirohtuA hguorht sdnuf yrassecen sezirohtuA .noisivorp elbarapmoc oN
noitcelloC ataD rotceS porC ytlaicepS
]10151 dna 33021 .sceS[ .seert/seniv
gniylrednu ton dna sporc no ecnarusni
ot ylno seilppa ytilibigile rof tnemeriuqer
ecnarusni eht seifiralc troper s'reganaM ])e(0121 .ceS[ .llib mraf
ehT .segnahc lacinhcet rehto ekam ot dna eht fo efil eht revo gnidnuf yrotadnam ]10101 .ceS[ ]1028 .C.S.U 7[
;4791 fo tcA edarT eht ni taht ot lacitnedi yrassecen sedivorp dna ,sessol riaper ot .ytirohtua snoitairporppa seunitnoc dna .margorp eht rof snoitairporppa launna
noisivorp a htiw tcA ecnarusnI porC laredeF tnemeganam drahcro rof tnemesrubmier ,000,051$ ot 000,57$ morf ecnatsissa dezirohtua dna sretsasid larutan ot
eht dnema ;retsasid larutan a morf tsol seert sdda ,000,001$ ot ecnatsissa launna launna no noitatimil eht sesaercni eud sessol rof stsidrahcro laicremmoc
gnitnalper fo tsoc tnemesrubmier eht yfidom no timil eht sesaercni ,ecnatsissa retsasid ,margorp eht rednu ecnatsissa retsasid etasnepmoc ot margorP ecnatsissA
ot segnahc htiw noisivorp etaneS stpodA rof elbigile sreworg eert yresrun sekaM rof elbigile sreworg eert yresrun sekaM eerT eht dehsilbatse llib mraf 2002 ehT
ecnatsissA retsasiD
]01101 .ceS[
.ecudorp hserf ni snegohtap ecuder ot
]50101 .ceS[ .dednepxe syaw tuoba sremusnoc dna lennosrep
litnu elbaliava niamer ot )2102-8002YF( ]3181 .ceS[ .esoprup yrtsudni ecudorp hserf etacude
yllaunna noillim 1$ fo snoitairporppa taht rof snoitairporppa launna ni noillim 1$ ot margorp a tnemelpmi ot smus
gnizirohtua ,noisivorp etaneS stpodA sezirohtua dna ,llib esuoH eht ot ralimiS yrassecen fo noitairporppa sezirohtuA .noisivorp elbarapmoc oN
])6(c806
]60101 .ceS[ .sporc .C.S.U 7[ .seitidommoc deificeps
ytlaiceps rof sredro gnitekram rednu ot elbacilppa sredro gnitekram
smargorp ytefas doof detaler-ytilauq fo snoitidnoc dna smret eht snrevog
.noisivorp esuoH seteleD .noisivorp elbarapmoc oN fo noitatnemelpmi eht sezirohtuA tcA tnemtsujdA larutlucirgA ehT
snoisivorP ytefaS dooF
]77011 .ceS[ .smeti noitca deificeps
rehto gnoma ,APP eht rednu detaluger
selcitra fo thgisrevo dna tnemeganam
eht evorpmi ot snoitaluger etaglumorp .ksir tnalp a esop yam taht
ot ,etairporppa sredisnoc ADSU smsinagro dereenigne yllaciteneg fo
sa dna ;7002 ,4 rebotcO detad ",krow gnitset dleif dna ,tnemevom etatsretni
-emarF ygolonhcetoiB 'SIHPA rof noita ,noitatropmi eht detaluger SIHPA
-redisnoC rednu snoisiveR dna denraeL .ygolonhcetoiB fo noitalugeR eht
snosseL" tnemucod eht ni deifitnedi eussi rof krowemarF detanidrooC laredeF
)642-011 .L.P( )9142 .R.H( tnemdnemA )9142 .R.H( yciloP/waL roirP
lliB mraF 8002 detcanE etutitsbuS dessaP-etaneS lliB dessaP-esuoH
]6581 .ceS[ .lasoporp a hcus stimbus
noitazinagro .S.U a fi ,sodacova ssaH ]80101 .ceS[ .setatS ]1461 .C.S.U
fo sdradnats dna sedarg eht gnitaluger detinU eht ni dlos sodacova ssaH 7[ .stcudorp larutlucirga rof smargorp
redro gnitekram a gnihsilbatse fo lla fo ytirutam muminim eht etaluger gnitekram dna hcraeser snrevog 6491
]80101 .ceS[ .noisivorp etaneS stpodA ssecorp eht etaitini ot ADSU sezirohtuA ot tca 6491 eht ot noitces a sddA fo tcA gnitekraM larutlucirgA ehT
])a(1-e806 .C.S.U
7[ .sdradnats s'redro eht teem .S.U
]50101 .ceS[ .seilppa eht ni sredro gnitekram rednu era taht
]20101 .ceS[ tnemeriuqer siht hcihw ot seitidommoc seitidommoc detropmi taht seriuqer
.noisivorp etaneS dna esuoH eht stpodA ]7023 .ceS[ .llib esuoH eht ot ralimiS fo tsil eht ot senitnemelc sddA tcA tnemtsujdA larutlucirgA ehT
]20401 ceS[ .6491
fo tcA gnitekraM larutlucirgA eht fo stifeneb
eht morf tnemrabed rof esuac tneiciffus
sa ADSU yb demeed eb yam ,yenoh ]5581 .ceS[ .yenoh degakcap no
ot tcepser htiw ,noitces siht fo stnemeriuqer lebal nigiro fo yrtnuoc eht ot esolc detacol
gnilebal eht fo snoitaloiv taht yficeps eb kram noitcepsni ro gnidarg ADSU
ot segnahc htiw noisivorp etaneS stpodA eht eriuqer ot )h(2261 .C.S.U 7 sdnemA .noisivorp elbarapmoc oN .noisivorp elbarapmoc oN
]10401 ]eton 1064 .C.S.U 7[
.ceS[ .adnerefer eht gnitcudnoc ni yraicudif ]4581 .ceS[ .yenoh rof stekram
a sa tca ot ADSU seriuqeR .sreldnah .redro noitomorp rieht dnapxe ot noitamrofni remusnoc
dna sretropmi ,srekcap yenoh ro srecudorp dna hcraeser yenoh eht no adnerefer dna ,noitomorp ,hcraeser detanidrooc
yenoh rof mudnerefer a stcudnoc ADSU dna draoB yenoH eht gnidrager snoisivorp rof sedivorp ,dednema sa ,)095
retfa draoB yenoH tnerruc eht eunitnocsid htiw tcA noitamrofnI remusnoC dna -89 .L.P( tcA noitamrofnI remusnoC
ot segnahc htiw noisivorp etaneS stpodA ,noitomorP ,hcraeseR yenoH eht sdnemA .noisivorp elbarapmoc oN dna ,noitomorP ,hcraeseR yenoH ehT
]10001 .ceS[ .melborp eht tabmoc
ot seigetarts dna redrosid espalloc
ynoloc eeb yenoh fo noitagitsevni eht
.noisivorp esuoH seteleD .noisivorp elbarapmoc oN no troper a timbus ot ADSU seriuqeR .noisivorp elbarapmoc oN
snoisivorP cificepS-ytidommoC rehtO
]4181 .ceS[ .retfaereht sraey 5 yreve dna
8002YF fo dne eht naht retal ton sporc ])a(g4022 .C.S.U 7[
ytlaiceps fo susnec etarapes a tcudnoc ]70101 .ceS[ .erutlucirgA fo susneC .sraey 5 yreve nekat eb ot erutlucirgA
ot ro susneC eht ni sporc ytlaiceps eht fo trap sa sporc ytlaiceps fo susnec fo susneC a sezirohtua )311-501 .L.P(
]30101 .ceS[ .noisivorp esuoH stpodA fo susnec a edulcni ot ADSU swollA a edulcni ot wal 7991 eht sdnemA tcA erutlucirgA fo susneC 7991 ehT
]70101 .ceS[
.secivres swen tekram rof snoitairporppa ]20401 .ceS[ .sporc ytlaiceps
)642-011 .L.P( )9142 .R.H( tnemdnemA )9142 .R.H( yciloP/waL roirP
lliB mraF 8002 detcanE etutitsbuS dessaP-etaneS lliB dessaP-esuoH
.I eltiT ytidommoC eht fo .noitcudorp cinagro ro
.)X eltiT( erutlucirgA cinagrO trap sa snoisivorp erutlucirga cinagro dna .)X eltiT( erutlucirgA cinagrO dna stcudorp larutlucitroh rof eltit etarapes
dna erutlucitroH ,eltit llib mraf wen setaerC erutlucitroh tsom sedulcni ;eltit wen oN erutlucitroH ,eltit llib mraf wen setaerC a edulcni ton did llib mraf 2002 ehT
]2581
.ceS[ .esoprup siht rof sdnuf yrotadnam
ni noillim 51$ sedivorP .stropmi ot eud
7002-4002 ni sessol rof sreworg sugarapsa
]40401 .ceS[ .noisivorp etaneS stpodA etasnepmoc ot margorp a sehsilbatsE .noisivorp elbarapmoc oN .noisivorp elbarapmoc oN
]40101
.ceS[ .smoorhsum rof seitivitca detaler dna
secitcarp gnildnah doog dna larutlucirga doog ]90101 .ceS[
rof smargorp ADSU ot esoporp dna poleved .snoisivorp rehto dna ]4016 .C.S.U 7[ .redro
yam licnuoc moorhsum eht taht yfiralc ]3581 .ceS[ .secnereffid ,draoB moorhsuM eht fo noitisopmoc gnitekram moorhsum eht fo snoitidnoc
ot segnahc htiw noisivorp esuoH stpodA lacinhcet htiw ,llib esuoH eht ot ralimiS cihpargoeg eht ot segnahc sekaM dna smret eht sniatnoc wal 0991 A
)642-011 .L.P( )9142 .R.H( tnemdnemA )9142 .R.H( yciloP/waL roirP
lliB mraF 8002 detcanE etutitsbuS dessaP-etaneS lliB dessaP-esuoH
¢
Renée Johnson
Specialist in Agricultural Policy
rjohnson@crs.loc.gov, 7-9588
This report is an updated and revised version of a report originally written by former CRS specialist Jean
M. Rawson.
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For other versions of this document, see http://wikileaks.org/wiki/CRS-RL33520