Conservation Programs – An Overview
Introduction
The United States Department of Agriculture, through the Natural Resources Conservation Service (NRCS) and the Farm Service Agency (FSA), currently administers approximately two dozen federal conservation programs. Conservation programs are voluntary federal programs designed to encourage agricultural producers and landowners to undertake conservation practices on agricultural lands. While the NRCS and FSA administer the programs, other agencies such as the Forest Service may assist in the implementation of some programs.
History
The origins of modern conservation programs are found in legislation enacted during the Great Depression era. As one scholar has noted, “[s]ince the 1930’s, the stated government policy has been to encourage agricultural conservation programs.” Dr. Neil E. Harl, AGRICULTURAL LAW, Volume 12, § 108.02[1] (hereinafter Harl).
In 1935, Congress enacted the Soil Conservation Act in order “[t]o provide for the protection of land resources against soil erosion, and for other purposes.” Act of April 27, 1935, Ch. 85, 49 Stat. 163. The act authorized the Conservation Options Program, a voluntary soil conservation program administered by the Soil Conservation Service, predecessor to the NRCS, that provided technical assistance to producers in planning soil management programs.
In 1936, the Soil Conservation Act was amended by the Soil Conservation and Domestic Allotment Act, which has been described as the “cornerstone” of the federal policy to encourage agricultural conservation programs. See Harl at § 108.02[1]. That act authorized the Agricultural Conservation Program, a voluntary program that provided agricultural producers with financial assistance for undertaking approved soil conservation practices.
Another major development in the conservation programs arena occurred in 1956 with the creation of the Great Plains Conservation Program (GPCP). The GPCP was a long-term voluntary program designed to encourage producers to develop conservation practices in the Great Plains region. The GPCP conservation practices addressed wind and water erosion and how to best utilize soil and water resources, in addition to undertaking “anti-pollution practices, measures to enhance fish, wildlife, and recreation resources, and practices to promote economic land use.” Harl, at § 108.04[2] (citation omitted).
In the years since the creation of the ACP and GPCP, the number and types of programs have greatly expanded. Today, approximately two dozen conservation programs are available to eligible agricultural producers. Despite their technical differences, the programs’ common denominator is that they address natural resource and environmental concerns associated with various aspects of agricultural production. More specifically, the programs are intended to “help people reduce soil erosion, enhance water supplies, improve water quality, increase wildlife habitat, and reduce damages caused by floods and other natural disasters.” USDA, Nat. Res. Conservation Serv., NRCS Conservation Programs.
Types of Programs
Conservation programs can be divided into two categories, “land retirement” and “working lands” programs. Land retirement programs require certain agricultural lands to be taken out of agricultural production and placed into a conservation-oriented use that is commensurate with the program in which the land is enrolled. Working land programs also require that certain conservation-oriented practices be carried out on agricultural lands. These programs differ, however, in that they require the land to remain under agricultural production.
Historically, land retirement programs have dominated the conservation program landscape. The USDA reports that “[f]rom 1986 through 2000, more than 90 percent of direct conservation payments were allocated to land retirement programs.” USDA, Econ. Res. Serv., Conservation Program Design, Contrasting Working-Land and Land Retirement Programs, EB4 (2006). In recent years, however, working lands programs have become more prevalent.
Major Programs
As noted, the NRCS and FSA currently administer more than two dozen conservation programs, the most prominent of which include the Conservation Reserve Program, Wetlands Reserve Program, Environmental Quality Incentives Program, and the Conservation Security Program.
The Conservation Reserve Program (CRP) is a land retirement program designed to remove millions of acres of environmentally sensitive and highly erodible land from agricultural production. The predominate focus of CRP is to dramatically reduce the amount of soil erosion derived from agricultural production. Under CRP, producers enter into contracts for at least 10 years but no longer than 15 years in duration.
The Farm Service Agency administers CRP with assistance from the NRCS. Currently, almost 27 million acres of agricultural lands are enrolled in CRP. USDA, Farm Serv.Agency, CRP Contract Summary and Statistics, Monthly Summary (August, 2013).
The Wetlands Reserve Program is a land retirement program that gives producers the opportunity to receive technical and financial assistance for the purpose of protecting, enhancing, or restoring a wetland on agricultural land. WRP is a long-term easement program under which producers may enroll for 10 years, 30 years, or permanently. WRP is administered and implemented by the NRCS.
The Environmental Quality Incentives Program (EQIP) is a working lands program that provides cost-share payments to producers and landowners to plan and install structural, vegetative, and land management practices such as filter strips and manure-management facilities to alleviate conservation problems. EQIP contains four subprograms: the Conservation Innovative Grants, Ground and Surface Water Conservation, Klamath River Basin, and Colorado River Basin Salinity Control programs. EQIP is administered by the NRCS.
The Conservation Security Program (CSP) is a voluntary working lands program that provides financial incentives and technical assistance to agricultural producers who promote conservation and improvement of soil, water, air, energy, plant and animal life, and other resource concerns on private and Tribal agricultural lands. The program is administered by the NRCS. CSP represents one of the most important developments in the history of federal conservation programs and could become a central component of overall U.S. agricultural policy.
For a summary and evolution of the Conservation Titles in the 1985-2002 Farm Bills, visit our U.S. Farm Bills page. For further and related information on Conservation Programs, visit our Animal Feeding Operations Reading Room and Sustainable Agriculture Reading Room.