Agricultural Conservation: Status of Programs That Provide Financial
Incentives (Letter Report, 04/28/95, GAO/RCED-95-169).

The Agriculture Department (USDA) administers 17 programs that provide
financial incentives to farmers and ranchers who use conservation
measures. Under 10 of the programs, USDA helps defray the cost of
implementing conservation practices through direct payments or low-cost
loans.  Under the other seven programs, USDA purchases easements or
rents land in order to retire it from agricultural production.  The
incentive-based conservation programs are intended to encourage
voluntary efforts to reduce soil erosion, lessen water pollution,
enhance fish and wildlife habitat, and address other conservation
concerns.  This report provides information on these incentive-based
programs since fiscal year 1992, including information on their budget
and level of activity and on the primary purpose of the conservation
measures taken under the programs.  GAO also identifies potential
options for consolidating these programs.

--------------------------- Indexing Terms -----------------------------

 REPORTNUM:  RCED-95-169
     TITLE:  Agricultural Conservation: Status of Programs That Provide 
             Financial Incentives
      DATE:  04/28/95
   SUBJECT:  Agricultural programs
             Forest conservation
             Soil conservation
             Water conservation
             Appropriated funds
             Program inventories
             Cost sharing (finance)
             Spending legislation
             Block grants
             Water quality
IDENTIFIER:  USDA Conservation Reserve Program
             USDA Agricultural Conservation Program
             USDA Colorado River Salinity Control Program
             USDA Emergency Conservation Program
             USDA Forestry Incentives Program
             USDA Great Plains Conservation Program
             USDA Rural Clean Water Program
             USDA Small Watershed Program
             FmHA Soil and Water Loan Program
             USDA Stewardship Incentive Program
             USDA Water Quality Incentive Project
             USDA Wetlands Reserve Program
             USDA Farm Cancellation and Conservation Program
             USDA Forest Legacy Program
             USDA Integrated Farm Management Program
             USDA Water Bank Program
             USDA Emergency Wetland Reserve Program
             
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Cover
================================================================ COVER


Report to the Committee on Agriculture, Nutrition, and Forestry, U.S. 
Senate

April 1995

AGRICULTURAL CONSERVATION - STATUS
OF PROGRAMS THAT PROVIDE FINANCIAL
INCENTIVES

GAO/RCED-95-169

USDA Incentive-Based Conservation Programs

(150539)


Abbreviations
=============================================================== ABBREV

  ACP - Agricultural Conservation Program
  CFSA - Consolidated Farm Service Agency
  CRBSCP - Colorado River Basin Salinity Control Program
  CRP - Conservation Reserve Program
  ECP - Emergency Conservation Program
  FIP - Forestry Incentives Program
  FS - Forest Service
  GAO - General Accounting Office
  GPCP - Great Plains Conservation Program
  NRCS - Natural Resources Conservation Service
  RCWP - Rural Clean Water Program
  SIP - Stewardship Incentive Program
  SWP - Small Watershed Program
  USDA - U.S.  Department of Agriculture
  WBP - Water Bank Program
  WQIP - Water Quality Incentives Projects
  WRP - Wetlands Reserve Program

Letter
=============================================================== LETTER


B-261147

April 28, 1995

The Honorable Richard G.  Lugar
Chairman
The Honorable Patrick J.  Leahy
Ranking Minority Member
Committee on Agriculture,
 Nutrition, and Forestry
United States Senate

The U.S.  Department of Agriculture (USDA) administers 17 programs
that give agricultural land users financial incentives to apply
conservation measures to their farms, ranches, and forests.  Under 10
of the programs, USDA shares the cost of implementing conservation
practices with agricultural land users through direct payments or
low-cost loans.  Under the other seven programs, USDA purchases
easements or rents land from land users in order to retire the land
from agricultural production for conservation purposes.  These
incentive-based conservation programs are intended to encourage land
users' voluntary efforts to reduce soil erosion, lessen water
pollution, enhance fish and wildlife habitat, and address other
conservation concerns. 

In your December 1994 letter and in subsequent discussions with your
staff, you asked us to provide information on these incentive-based
programs since fiscal year 1992, including information on their
budget and level of activity and on the primary purpose of the
conservation measures taken under the programs.  In addition, you
asked us to identify potential options for consolidating these
programs. 


   RESULTS IN BRIEF
------------------------------------------------------------ Letter :1

From fiscal year 1992, the first full year of implementation for the
1990 farm bill, through fiscal year 1995, the Congress appropriated a
total of $8.6 billion to USDA to carry out its incentive-based
conservation programs.  Overall, the total annual budget for these
programs has been stable for these years.  However, when the budget
for the Conservation Reserve Program, which accounts for about 77
percent of the appropriations, is excluded, the budgets for the
remaining programs declined in fiscal year 1995.  Each year, these
programs supported conservation measures on about 71 million crop,
range, and forest acres under about 565,000 agreements with land
users.  While most of the programs have multiple conservation
purposes, soil erosion control was cited as the primary purpose for
spending 90 percent of the programs' funds and implementing
conservation measures on about 80 percent of the agricultural acres
in the programs.  Further analysis shows that cost-share programs
have more diverse purposes than land-retirement programs. 

Several conservation and agricultural organizations propose a range
of options for consolidating USDA's incentive-based conservation
programs to eliminate overlap and make it easier for agricultural
land users to apply for financial assistance.  Options include (1)
combining application procedures into one form, (2) merging programs
with similar incentives, and (3) consolidating all programs under a
state block-grant program.  Although USDA has no official plans or
proposals to consolidate these programs, it is considering some of
these options under ongoing government reinvention efforts and in
anticipation of the 1995 farm bill. 


   BACKGROUND
------------------------------------------------------------ Letter :2

USDA, through the Consolidated Farm Service Agency (CFSA), Natural
Resources Conservation Service (NRCS), and Forest Service (FS)
administers 17 incentive-based conservation programs.  Although six
of these programs were newly authorized in the 1990 farm bill (Food,
Agriculture, Conservation, and Trade (FACT) Act of 1990, P.L. 
101-624), most programs are long-standing.  Tables 1 and 2 provide
more detailed information about each program. 



                                     Table 1
                     
                          USDA's 10 Cost-Share Programs

Program,
responsible                     Authorization
agency, and                     and
1992-95                         appropriation   Geographic
appropriation   Purpose         account         area covered    Payment limit
--------------  --------------  --------------  --------------  ----------------
Agricultural    Prevent soil    Soil            All states and  Up to 75% of the
Conservation    loss and water  Conservation    territories     total cost of
Program         pollution and   and Domestic                    the activity,
                conserve        Allotment Act                   with a maximum
CFSA            water, forest,  of 1936, as                     of $3,500 per
                and wildlife    amended                         person per year
                resources
                                Agricultural
                                Conservation
$628.2 million                  Program (12-
                                3315)

Colorado River  Install         Colorado River  7 states        Up to 70% of the
Basin Salinity  conservation    Basin Salinity                  total cost of
Control         practices to    Control Act of                  the activity
Program         reduce salt     1974, as
                levels in the   amended
NRCS            Colorado River
                                Colorado River
                                Basin Salinity
$46.9 million                   Control
                                Program (12-
                                3318)

Emergency       Repair          Agricultural    All states and  Up to 64% of the
Conservation    agricultural    Credit Act of   territories     first $62,500,
Program         land damaged    1978, as                        40% of the
                by natural      amended                         second $62,500,
CFSA            disasters and                                   and 20% of the
                conserve water  Emergency                       eligible costs
                during severe   Conservation                    above $125,000;
                drought         Program (12-                    payment limit of
                                3316)                           $200,000 per
                                                                person per
                                                                disaster
$134.9 million

Forestry        Plant trees     Cooperative     All states and  Under USDA
Incentives      and improve     Forestry        Puerto Rico     regulation, up
Program         timber stands   Assistance Act                  to 65% of the
                to increase     of 1978, as                     total cost of
NRCS            supplies from   amended                         the activity,
                nonindustrial                                   not to exceed
                private forest  Forestry                        $10,000 per
                lands           Incentives                      person per year
                                Program (12-
                                3336)
$44.4 million

Great Plains    Solve soil and  1956            556 counties    Up to 80% of the
Conservation    water resource  amendments to   in 10 states    total cost of
Program         problems on     the Soil                        the activity,
                farms and       Conservation                    with a limit of
NRCS            ranches in the  and Domestic                    $35,000 per
                Great Plains    Allotment Act                   agreement
                                of 1936 and
                                Agricultural
                                Adjustment Act
$91.5 million                   of 1938

                                Great Plains
                                Conservation
                                Program (12-
                                2268)

Rural Clean     Control         Federal Water   22 states       Up to 75% of the
Water Program   agricultural    Pollution                       total cost of
                nonpoint        Control Act                     the activity,
NRCS            source water    Amendments of                   with a maximum
                pollution in    1972                            of $50,000 per
                rural areas                                     person for the
                                Rural Clean                     life of the
                                Water Program                   program
                                (12-3337)
No
appropriation

Small           Support         Watershed       37 states and   Up to 50% of the
Watershed       activities in   Protection and  Puerto Rico     construction
Program         watersheds      Flood                           cost, with a
                smaller than    Prevention Act                  maximum of
NRCS            250,000 acres   (1954), as                      $100,000 per
                to prevent      amended                         person for the
                flooding,                                       life of the
                reduce soil     Watershed and                   program
                erosion, and    Flood
                improve water   Prevention
                quality         Operations
$547.0 million                  (12-1072)

Soil and Water  Provide loans   Consolidated    All states      $50,000, to be
Conservation    to develop,     Farm and Rural                  repaid within 40
Loan Program    conserve, and   Development                     years
                make proper     Act of 1961,
CFSA            use of farm     as amended
                and ranch
$1.5 million    lands           Agricultural
                                Credit
                                Insurance Fund
                                Program (12-
                                1140)

Stewardship     Enhance         FACT Act of     All states and  Up to 75% of the
Incentive       management of   1990            territories     total cost of
Program         nonindustrial                                   the activity,
                private forest  State and                       with a maximum
FS              lands to        Private                         of $10,000 per
                increase        Forestry (12-                   person per
                timber supply   1105)                           fiscal year
                and improve
                fish and
                wildlife
                habitat and
$54.8 million   recreation

Water Quality   Support farm    FACT Act of     All states and  An incentive
Incentives      practices or    1990            territories     payment of up to
Projects        systems to                                      $25 per acre,
                reduce          Agricultural                    with a maximum
CFSA            agricultural    Conservation                    of $3,500 per
                water           Program (12-                    person per year;
                pollutants      3315)                           an additional
                                                                $1,500 per
$55.3 million                                                   person per
                                                                contract
                                                                available in
                                                                cost-share
                                                                assistance
--------------------------------------------------------------------------------


                                     Table 2
                     
                      USDA's Seven Land-Retirement Programs

Program,
responsible                     Authorization
agency, and                     and
1992-95                         appropriation   Geographic
appropriation   Purpose         account         area covered    Payment limit
--------------  --------------  --------------  --------------  ----------------
Conservation    Conserve and    Food Security   All states and  Up to 50% of the
Reserve         improve soil    Act of 1985,    territories     cost to
Program         and water       as amended                      establish cover;
                resources by                                    annual rental
CFSA            renting land    Conservation                    payments--up to
                to retire from  Reserve                         $50,000 per
                production and  Program (12-                    person per
                to establish    3319)                           fiscal year
                10-year
                conservation
                cover
$6,676.4
million

Emergency       Restore         Emergency       8 states        Between 75% and
Wetland         wetland         supplemental                    100% of cost to
Reserve         functions on    appropriations                  restore wetland;
Program         flooded         acts (1993 and                  fair market
                cropland        1994)                           value to buy
NRCS                                                            conservation
                                Watershed and                   easement
                                Flood
                                Prevention
                                Operations
$39.2 million                   (12-1072)

Farm Debt       Protect         FACT Act of     All states and  Debt
Cancellation-   marginal and    1990            territories     cancellation on
-Conservation   sensitive                                       outstanding loan
Easements       lands under     Agricultural                    balance, not to
Program         federal farm    Credit                          exceed 33% of
                loan by buying  Insurance Fund                  principal for
CFSA            an easement     Liquidating                     current
                for             Account (12-                    borrowers; not
                conservation,   4140)                           to exceed fair
                recreation,                                     market value to
                and wildlife                                    buy easement for
                purposes                                        delinquent
                                                                borrowers





No
appropriation

Forest Legacy   Protect         FACT Act of     18 states and   Fair market
Program         environmentall  1990            1 territory     value to buy
                y important                                     conservation
FS              nonindustrial   State and                       easement
                private         Private
                forests         Forestry(12-
                threatened by   1105)
$28.4 million   conversion to
                nonforest uses

Integrated      Support use of  FACT Act of     All states and  Eligible for
Farm            resource-       1990            territories     annual farm
Management      conserving                                      program price
Program         cropping        Commodity                       support payment
Option          practices       Credit                          on acres planted
                                Corporation                     to conserving
CFSA                            Fund (12-                       uses
                                4336)


No
appropriation

Water Bank      Conserve water  Water Bank      13 states       Up to 75% of the
Program         and protect     Act, 1970, as                   total cost of
                and enhance     amended                         the activity,
NRCS            migratory                                       with a maximum
                waterfowl       Water Bank                      of $3,500 per
                habitat         Program (12-                    participant per
                                3320)                           year; annual
                                                                rental payments-
                                                                -no limit




$45.2 million

Wetlands        Restore and     FACT Act of     10 states       Fair and
Reserve         protect         1990                            reasonable real
Program         agricultural                                    estate fees and
                wetlands to     Wetlands                        fair market
NRCS            improve         Reserve                         value for
                wildlife        Program (12-                    easements (up to
                habitat         1080)                           $50,000 per
                                                                person per year
                                                                for nonpermanent
                                                                easements).
                                                                Restoration
                                                                costs to include
                                                                not less than
                                                                75% for
                                                                permanent
                                                                easements and
$206.3 million                                                  between 50% and
                                                                75% for
                                                                nonpermanent
                                                                easements.
--------------------------------------------------------------------------------

   STATUS OF INCENTIVE-BASED
   CONSERVATION PROGRAMS SINCE
   FISCAL YEAR 1992
------------------------------------------------------------ Letter :3

For USDA's incentive-based conservation programs, the overall budget
and level of activity have been stable since fiscal year 1992,
largely because of the impact of the Conservation Reserve Program. 
During this time, the Congress has approved $8.6 billion in spending,
slightly less than requested in the President's annual budgets.  Most
of these funds have been obligated for direct payments to
agricultural land users under an annual average of about 565,000
agreements.\1 Under these agreements, USDA supports conservation
measures on about 71 million acres annually.  Most of these
conservation measures are designed to control soil erosion. 


--------------------
\1 Under each of the programs, USDA enters into individual binding
agreements or contracts with agricultural land users that will result
in federal budget outlays, immediately or in the future.  Each
agreement establishes the conditions under which USDA will provide
incentive payments to the land user.  According to USDA, each
agreement generally involves one land user, but multiple parties
participate in some cases.  Furthermore, an individual land user may
sign more than one agreement. 


      TRENDS IN BUDGET REQUESTS,
      APPROPRIATIONS, AND
      OBLIGATIONS FOR
      INCENTIVE-BASED CONSERVATION
      PROGRAMS
---------------------------------------------------------- Letter :3.1

According to USDA's data, the overall annual budget for USDA's
incentive-based conservation programs has been stable since the 1990
farm bill was implemented.  (See fig.  1.) The President requested $9
billion for these programs for fiscal years 1992 through 1995.  In
response to these requests, the Congress appropriated $8.6 billion. 
For the 3 completed fiscal years--1992 through 1994--USDA obligated
$6.6 billion. 

   Figure 1:  Budget Data for
   Incentive-Based Conservation
   Programs, Fiscal Years 1992-96

   (See figure in printed
   edition.)

Notes:  In 1993, USDA's obligations exceeded appropriations because
funds for some multiyear ("no year authority") programs were carried
over.  Also, data are not available for the Integrated Farm
Management Program Option, which is funded through USDA's annual
commodity programs and is not tracked separately by USDA. 

Source:  GAO's analysis of USDA's data. 

One incentive-based program--the Conservation Reserve
Program--dominates all others, accounting for about 77 percent of the
appropriations for fiscal years 1992 through 1995.  If the large
appropriations for the Conservation Reserve Program are subtracted
from the total appropriations for the programs, the budgets for the
remaining programs increased slightly between 1992 and 1994 and
declined significantly in 1995.  (See fig.  2.)

   Figure 2:  Budget Trends for
   Incentive-Based Conservation
   Programs, Fiscal Years 1992-95,
   Excluding the Conservation
   Reserve Program

   (See figure in printed
   edition.)

Note:  Data are not available for the Integrated Farm Management
Program Option, which is funded through USDA's annual commodity
programs and is not tracked separately by USDA. 

Source:  GAO's analysis of USDA's data. 

Of the funds obligated, $6.2 billion (95 percent) was obligated for
direct payments to land users.  The remaining $0.4 billion (5
percent) was obligated for technical assistance and other program
costs.  (See fig.  3.)

   Figure 3:  Obligations for
   Incentive-Based Conservation
   Programs, Fiscal Years 1992-94

   (See figure in printed
   edition.)

Note:  Data are not available for the Integrated Farm Management
Program Option, which is funded through USDA's annual commodity
programs and is not tracked separately by USDA. 

Source:  GAO's analysis of USDA's data. 

Of the $6.2 billion in incentive payments obligated to agricultural
land users, $5.2 billion (83 percent) was used to retire land from
production, while the remaining $1 billion (17 percent) was spent to
share the cost of conservation measures on active farms, ranches, and
private forests.  (See fig.  4.)

   Figure 4:  Incentive Payments
   to Agricultural Land Users
   Under Cost-Share and
   Land-Retirement Programs,
   Fiscal Years 1992-94

   (See figure in printed
   edition.)

Note:  Data are not available for the Integrated Farm Management
Program Option, which is funded through USDA's annual commodity
programs and is not tracked separately by USDA. 

Source:  GAO's analysis of USDA's data. 

Appendix I contains more detailed information on each program's
budget. 


      USDA HAS SUPPORTED
      CONSERVATION MEASURES ON
      ABOUT 71 MILLION ACRES
      ANNUALLY
---------------------------------------------------------- Letter :3.2

Data from USDA's program offices show that for fiscal years 1992
through 1994, USDA supported conservation measures on an average of
71 million acres annually under the programs.  The acreage receiving
conservation assistance increased slightly over these years.  (See
fig.  5.)

   Figure 5:  Acres With
   Conservation Measures Financed
   Under Incentive-Based
   Conservation Programs, Fiscal
   Years 1992-94

   (See figure in printed
   edition.)

Note:  Acreage data are not available for measures financed under the
Soil and Water Conservation Loan Program. 

Source:  GAO's analysis of USDA's data. 

About half of this acreage has been retired from active agricultural
use under long-term rental contracts or easements purchased under
USDA's seven land-retirement programs.  The Conservation Reserve
Program supports the largest number of retired acres--about 36
million annually.  For the remaining acres, USDA has shared the cost
of applying conservation measures with the agricultural land user
through 10 cost-share programs.  (See fig.  6.) The largest of these
programs, the Great Plains Conservation Program, affects about 20
million acres annually. 

   Figure 6:  Acres Under
   Incentive-Based Conservation
   Programs, Cost-Share and
   Land-Retirement, Fiscal Years
   1992-94

   (See figure in printed
   edition.)

Note:  Acreage data are not available for measures financed under the
Soil and Water Conservation Loan Program. 

Source:  GAO's analysis of USDA's data. 

For fiscal years 1992 through 1994, USDA supported conservation
measures through an average of about 565,000 agreements per year with
agricultural land users.  (See fig.  7.)

   Figure 7:  Agreements With
   Agricultural Land Users Under
   Incentive-Based Conservation
   Programs, Fiscal Years 1992-94

   (See figure in printed
   edition.)

Source:  GAO's analysis of USDA's data. 

Appendix II contains more information about the number of acres
affected and agreements signed under each of USDA's programs. 


      SOIL EROSION CONTROL IS THE
      FOCUS OF INCENTIVE-BASED
      CONSERVATION PROGRAMS
---------------------------------------------------------- Letter :3.3

Most of USDA's incentive-based conservation programs address multiple
resource conservation objectives.  However, an analysis of USDA's
data for these programs reveals that about 90 percent of their funds
for fiscal years 1992 through 1994 was spent on conservation measures
primarily intended to control soil erosion.\2 Likewise, conservation
measures taken on approximately 80 percent of the acres covered under
the programs have as their primary purpose controlling soil erosion. 
(See figs.  8 and 9.)

   Figure 8:  Percent of Dollars
   Spent Under Incentive-Based
   Conservation Programs, by
   Conservation Purpose, Fiscal
   Years 1992-94

   (See figure in printed
   edition.)

Note:  Data are not available on the Soil and Water Conservation Loan
Program or the Integrated Farm Management Program Option. 

Source:  GAO's analysis of USDA's data. 

   Figure 9:  Percent of Acres
   Covered Under Incentive-Based
   Conservation Programs, by
   Conservation Purpose, Fiscal
   Years 1992-94

   (See figure in printed
   edition.)

Note:  Data are not available on the Soil and Water Conservation Loan
Program or the Integrated Farm Management Program Option. 

Source:  GAO's analysis of USDA's data. 

These data also show that USDA's cost-share programs have more
diversified purposes than do the land-retirement programs.  For the
cost-share programs, during fiscal years 1992 through 1994, soil
erosion control measures accounted for about 50 percent of all the
dollars spent and about 56 percent of all the acres covered.  Water
pollution abatement measures accounted for 22 and 24 percent of the
dollars and acres, respectively; other conservation measures
accounted for 27 and 14 percent of the dollars and acres,
respectively.  Conservation measures to enhance fish and wildlife
habitat accounted for the smallest proportion of the dollars spent (1
percent) and the acres covered (6 percent).  For the land-retirement
programs, however, during fiscal years 1992 through 1994, soil
erosion control measures accounted for over 96 percent of all the
dollars spent and 99 percent of all the acres covered.  (See figs. 
10 and 11.)

   Figure 10:  Percent of Dollars
   Spent on Cost-Share and
   Land-Retirement Programs, by
   Conservation Purpose, Fiscal
   Years 1992-94

   (See figure in printed
   edition.)

Note:  Data are not available on the Soil and Water Conservation Loan
program or the Integrated Farm Management Program Option. 

Source:  GAO's analysis of USDA's data. 

   Figure 11:  Percent of Acres
   Covered Under Cost-Share and
   Land-Retirement Programs, by
   Conservation Purpose, Fiscal
   Years 1992-94

   (See figure in printed
   edition.)

Note:  Data are not available on the Soil and Water Conservation Loan
program. 

Source:  GAO's analysis of USDA's data. 

Appendix III contains more information on the percentage of the
dollars spent and the acres covered for each program, by conservation
purpose. 


--------------------
\2 USDA program offices generally classify only a primary
conservation purpose in their program data bases (e.g., soil erosion
control, water pollution abatement, fish and wildlife habitat
enhancement, or other), although many conservation measures may have
secondary conservation purposes and result in multiple environmental
benefits. 


   OPTIONS TO CONSOLIDATE PROGRAMS
   HAVE BEEN IDENTIFIED
------------------------------------------------------------ Letter :4

According to USDA officials and our review of the programs'
activities, the 17 incentive-based conservation programs overlap
considerably.  They frequently promote identical resource
conservation purposes, use similar financial incentives, serve the
same population, and finance the application of the same set of
technical practices.  Anticipating the reauthorization of federal
agricultural programs in 1995, representatives of several
organizations and some USDA officials have identified options for
consolidating USDA's incentive-based conservation programs.  These
options are aimed at eliminating overlap and making it easier for
agricultural land users to obtain assistance.  USDA is considering
some of these options but has not yet developed any formal proposals. 


      PROGRAMS SERVE THE SAME
      POPULATION AND USE SIMILAR
      APPROACHES
---------------------------------------------------------- Letter :4.1

USDA's incentive-based conservation programs generally serve the same
population--farmers, ranchers, and private forest operators. 
Although seven of the incentive-based programs are available only in
certain regions of the country, most are national in scope. 
Furthermore, the programs use similar approaches.  Most programs
require the development of a site-specific plan between USDA and the
agricultural land user that details the financed conservation
measures to be implemented and maintained.  In developing these
plans, USDA officials use a standardized set of technical practices
to help agricultural land users address specific conservation needs,
such as reducing soil erosion caused by wind or rain or controlling
agricultural runoff to reduce water pollution.\3 While not every
practice is allowable under every program, the programs overlap
considerably.  For example, 73 technical practices are allowable
under 4 or more of the 11 programs for which detailed data are
available.  (See app.  IV for a list of the technical practices
shared among 4 or more of these 11 incentive-based conservation
programs.)


--------------------
\3 Most of these technical practices are documented in NRCS' National
Handbook of Conservation Practices for soil and water conservation
programs. 


      SEVERAL ORGANIZATIONS
      PROPOSE CHANGES TO SIMPLIFY
      PROGRAMS' STRUCTURE
---------------------------------------------------------- Letter :4.2

Representatives of several interest groups and some USDA officials
agree that the current structure of incentive-based conservation
programs needs to be simplified.  For example, many noted that having
multiple programs makes it more difficult for agricultural land users
to identify and apply for financial and technical assistance.  USDA
agencies also grapple with cumbersome requirements for
administration, technical assistance and planning, and recordkeeping
for each program.  Finally, some representatives and USDA officials
expressed concern that as federal funds decline, individual
conservation programs will be competing for fewer funds. 

In response to these concerns, several groups have proposed a range
of options to streamline USDA's incentive-based conservation
programs.  Although USDA has not presented its farm bill proposals
for congressional consideration, agency officials are considering
some of these options under ongoing initiatives to reorganize and
reinvent government.  (See table 3.)



                                Table 3
                
                      Options for Streamlining and
                  Consolidating USDA's Incentive-Based
                         Conservation Programs

Option                  Description             Affected programs
----------------------  ----------------------  ----------------------
Consolidate             Maintain separate       All
application process     programs but allow
                        agricultural land
                        users to use a single
                        USDA application
                        process and form

Consolidate farm        Maintain separate       All
management plans        programs but integrate
                        site-specific plans
                        into a single farm
                        management plan

Consolidate cost-       Eliminate separate      Agricultural
share programs          authorities and merge   Conservation Program,
                        programs into one       Colorado River Basin
                        cost-share program.     Salinity Control
                        The program could       Program, Emergency
                        integrate all           Conservation Program,
                        conservation and        Forestry Incentives
                        environmental purposes  Program, Great Plains
                        on a site-specific,     Conservation Program,
                        whole-farm basis.       Rural Clean Water
                        Merge loan program      Program, Small
                        with farm operating     Watershed Program,
                        loan program            Soil and Water
                                                Conservation Loan
                                                Program, Stewardship
                                                Incentive Program,
                                                Water Quality
                                                Incentives Projects

Consolidate land-       Eliminate separate      Conservation Reserve
retirement programs     authorities and merge   Program, Emergency
                        all land-retirement     Wetland Reserve
                        programs.               Program, Water Bank
                        Alternatively,          Program, Wetlands
                        maintain a separate     Reserve Program\
                        Conservation Reserve
                        Program but merge
                        remaining programs

Provide incentive       Maintain separate       All
payments on watershed   programs or
basis                   consolidate programs
                        but target payments to
                        impaired watershed
                        areas

Consolidate under a     Eliminate USDA-         All
block-grant program     administered programs
                        and replace with a
                        consolidated
                        agricultural
                        conservation block-
                        grant program run by
                        state agencies
----------------------------------------------------------------------

   AGENCY COMMENTS
------------------------------------------------------------ Letter :5

As your offices requested, we did not obtain written agency comments
on a draft of this report.  However, in April 1995, we met with USDA
officials responsible for administering the incentive-based
conservation programs and discussed the information contained in this
report.  These officials included the Assistant Deputy Administrator
for Farm Programs and the Acting Director, Conservation and
Environmental Protection Division, CFSA; the Assistant Director for
Cooperative Forestry, FS; and the Deputy Chief for Programs and the
Acting Director, Conservation and Ecosystem Assistance Division,
NRCS.  We incorporated their comments into this report where
appropriate. 


   SCOPE AND METHODOLOGY
------------------------------------------------------------ Letter :6

To provide information on the status of these programs since fiscal
year 1992, we interviewed officials with USDA's CFSA, NRCS, and FS in
Washington, D.C.  In addition, we obtained and analyzed data on each
program's budget and activities from fiscal year 1992 through the
most recent year for which complete information was available
(ranging between fiscal years 1994 and 1996).  All monetary figures
in this report are expressed in nominal dollars.  Because the rate of
inflation was low between 1992 and 1994, we did not adjust the data
to current dollars.  To determine each program's primary conservation
purpose by incentives paid to agricultural land users and by acres
affected, we obtained and analyzed data on each program's activities
from USDA program offices.  These data are classified by four primary
conservation purposes (soil erosion control, water pollution
abatement, fish and wildlife habitat enhancement, and other).  We did
not verify the accuracy of USDA's budget and program data. 

To identify areas of overlap and opportunities for consolidation, we
reviewed information on program activities and interviewed USDA
officials.  In addition, we obtained similar information from
national conservation and agricultural organizations.  We did not
independently assess the costs and benefits associated with any of
the options being proposed to consolidate or reorganize USDA's
incentive-based conservation programs. 

We conducted our review from December 1994 through April 1995 in
accordance with generally accepted government auditing standards. 


---------------------------------------------------------- Letter :6.1

We are sending copies of this report to the appropriate Senate and
House Committees; interested Members of Congress; the Secretary of
Agriculture; the Director, Office of Management and Budget; and other
interested parties.  We will also make copies available to others
upon request. 

Please contact me at (202) 512-5138 if you or your staff have any
questions.  Major contributors to this report are listed in appendix
V. 

John W.  Harman
Director, Food and
 Agriculture Issues


FUNDS REQUESTED, APPROPRIATED, AND
OBLIGATED FOR USDA'S
INCENTIVE-BASED CONSERVATION
PROGRAMS, FISCAL YEARS 1992-96
=========================================================== Appendix I

This appendix presents USDA's data on the funds requested,
appropriated, and obligated for fiscal years 1992 through 1996 for
each program.  (Figures are rounded to the nearest hundred thousand.)
Obligated funds include both moneys provided to agricultural land
users and other program costs, such as expenditures for technical
assistance and administration.  For the Integrated Farm Management
Program Option, there are no direct budgetary costs.  According to
USDA officials, this program is funded through annual farm price and
income support programs.  USDA does not track expenditures for the
program separately from annual price and income support payments to
participants in commodity programs. 



                               Table I.1
                
                     Budgetary Information for the
                   Agricultural Conservation Program

                         (Dollars in thousands)

                                                  Obligated  Obligated
                                     Appropriate    to land  for other
Year                      Requested            d      users      costs
------------------------  ---------  -----------  ---------  ---------
1992                       $176,200     $187,600   $173,700    $10,500
1993                        110,000      179,400    172,200     10,500
1994                        131,900      176,200    181,000     10,900
1995                         85,000       85,000         \a         \a
1996                         42,500           \a         \a         \a
----------------------------------------------------------------------
\a Information not available. 



                               Table I.2
                
                 Budgetary Information for the Colorado
                  River Basin Salinity Control Program

                         (Dollars in thousands)

                                                  Obligated  Obligated
                                     Appropriate    to land  for other
Year                      Requested            d      users      costs
------------------------  ---------  -----------  ---------  ---------
1992                        $14,800      $14,800     $9,800     $5,900
1993                         14,800       13,800      8,900      5,600
1994                          8,500       13,800      8,600      5,600
1995                          8,400        4,500         \a         \a
1996                          2,700           \a         \a         \a
----------------------------------------------------------------------
\a Information not available. 



                               Table I.3
                
                     Budgetary Information for the
                      Conservation Reserve Program

                         (Dollars in thousands)

                                                  Obligated  Obligated
                                     Appropriate    to land  for other
Year                      Requested            d      users      costs
------------------------  ---------  -----------  ---------  ---------
1992                      $1,643,00   $1,611,300  $1,651,80     $8,500
                                  0                       0
1993                      1,607,000    1,578,500  1,683,300      5,100
1994                      1,756,000    1,743,300  1,735,600          0
1995                      1,752,000    1,743,300         \a         \a
1996                      1,926,400           \a         \a         \a
----------------------------------------------------------------------
\a Information not available. 



                               Table I.4
                
                Budgetary Information for the Emergency
                          Conservation Program

                         (Dollars in thousands)

                                                  Obligated  Obligated
                                     Appropriate    to land  for other
Year                      Requested            d      users      costs
------------------------  ---------  -----------  ---------  ---------
1992                            $ 0      $22,500    $10,300      $ 800
1993                              0       64,400     57,800      1,900
1994                          2,800       25,000     28,200      1,700
1995                          3,000       23,000         \a         \a
1996                          3,000           \a         \a         \a
----------------------------------------------------------------------
\a Information not available. 



                               Table I.5
                
                Budgetary Information for the Emergency
                        Wetland Reserve Program

                         (Dollars in thousands)

                                                  Obligated  Obligated
                                     Appropriate    to land  for other
Year                      Requested            d      users      costs
------------------------  ---------  -----------  ---------  ---------
1992                             \a           \a         \a         \a
1993                             \a           \a         \a         \a
1994                             $0      $39,200    $15,200     $2,700
1995                              0            0         \b         \b
1996                              0           \b         \b         \b
----------------------------------------------------------------------
\a No program existed. 

\b Information not available. 



                               Table I.6
                
                Budgetary Information for the Farm Debt
                  Cancellation--Conservation Easements
                                Program

                         (Dollars in thousands)

                                                  Obligated  Obligated
                                     Appropriate    to land  for other
Year                      Requested            d      users      costs
------------------------  ---------  -----------  ---------  ---------
1992                             $0           $0     $1,100         $0
1993                              0            0      1,500          0
1994                              0            0      2,500          0
1995                              0            0         \a         \a
1996                              0           \a         \a         \a
----------------------------------------------------------------------
\a Information not available. 



                               Table I.7
                
                  Budgetary Information for the Forest
                             Legacy Program

                         (Dollars in thousands)

                                                  Obligated  Obligated
                                     Appropriate    to land  for other
Year                      Requested            d      users      costs
------------------------  ---------  -----------  ---------  ---------
1992                             $0       $4,900         $0     $4,900
1993                              0        9,900        300      9,600
1994                          8,400        6,900      1,300      5,600
1995                          6,700        6,700         \a         \a
1996                         10,000           \a         \a         \a
----------------------------------------------------------------------
\a Information not available. 



                               Table I.8
                
                 Budgetary Information for the Forestry
                           Incentives Program

                         (Dollars in thousands)

                                                  Obligated  Obligated
                                     Appropriate    to land  for other
Year                      Requested            d      users      costs
------------------------  ---------  -----------  ---------  ---------
1992                        $12,500      $12,500    $11,500     $1,200
1993                         12,500       12,500     11,100      1,200
1994                         11,500       12,800     11,700      1,300
1995                          6,600        6,600         \a         \a
1996                          6,600           \a         \a         \a
----------------------------------------------------------------------
\a Information not available. 



                               Table I.9
                
                  Budgetary Information for the Great
                      Plains Conservation Program

                         (Dollars in thousands)

                                                  Obligated  Obligated
                                     Appropriate    to land  for other
Year                      Requested            d      users      costs
------------------------  ---------  -----------  ---------  ---------
1992                        $25,300      $25,300    $17,500     $9,100
1993                         25,300       25,300     16,400      9,000
1994                         16,300       25,700     16,200      9,500
1995                         10,900       15,200         \a         \a
1996                         11,000           \a         \a         \a
----------------------------------------------------------------------
\a Information not available. 



                               Table I.10
                
                  Budgetary Information for the Rural
                          Clean Water Program

                         (Dollars in thousands)

                                                  Obligated  Obligated
                                     Appropriate    to land  for other
Year                      Requested            d      users      costs
------------------------  ---------  -----------  ---------  ---------
1992                             $0           $0         $0     $1,000
1993                              0            0        200        200
1994                              0            0          0        200
1995                              0            0         \a         \a
1996                              0           \a         \a         \a
----------------------------------------------------------------------
\a Information not available. 



                               Table I.11
                
                  Budgetary Information for the Small
                           Watershed Program

                         (Dollars in thousands)

                                                  Obligated  Obligated
                                     Appropriate    to land  for other
Year                      Requested            d      users      costs
------------------------  ---------  -----------  ---------  ---------
1992                       $122,600     $149,200    $80,200   $ 64,600
1993                       $122,600     $165,200     90,800     68,000
1994                       $104,900     $172,600    107,800     72,200
1995                        $25,000      $60,000         \a         \a
1996                       $100,000           \a         \a         \a
----------------------------------------------------------------------
\a Information not available. 



                               Table I.12
                
                 Budgetary Information for the Soil and
                    Water Conservation Loan Program

                         (Dollars in thousands)

                                                  Obligated  Obligated
                                     Appropriate    to land  for other
Year                      Requested            d      users      costs
------------------------  ---------  -----------  ---------  ---------
1992                             $0         $500       $200         $0
1993                              0          500        400          0
1994                            500          500        400          0
1995                          1,000            0         \a         \a
1996                          1,000           \a         \a         \a
----------------------------------------------------------------------
\a Information not available. 



                               Table I.13
                
                     Budgetary Information for the
                     Stewardship Incentive Program

                         (Dollars in thousands)

                                                  Obligated  Obligated
                                     Appropriate    to land  for other
Year                      Requested            d      users      costs
------------------------  ---------  -----------  ---------  ---------
1992                        $90,000         $800         $0       $800
1993                         71,000       17,800     13,500      4,300
1994                         25,900       17,900     13,300      4,600
1995                         22,400       18,300         \a         \a
1996                         28,000           \a         \a         \a
----------------------------------------------------------------------
\a Information not available. 



                               Table I.14
                
                Budgetary Information for the Water Bank
                                Program

                         (Dollars in thousands)

                                                  Obligated  Obligated
                                     Appropriate    to land  for other
Year                      Requested            d      users      costs
------------------------  ---------  -----------  ---------  ---------
1992                        $10,900      $18,600    $17,000     $1,000
1993                         11,400       18,600     18,000      1,100
1994                         17,100        8,000      9,500        600
1995                          8,000            0         \a         \a
1996                              0           \a         \a         \a
----------------------------------------------------------------------
\a Information not available. 



                               Table I.15
                
                  Budgetary Information for the Water
                      Quality Incentives Projects

                         (Dollars in thousands)

                                                  Obligated  Obligated
                                     Appropriate    to land  for other
Year                      Requested            d      users      costs
------------------------  ---------  -----------  ---------  ---------
1992                        $ 6,800      $ 6,800    $ 5,400       $300
1993                         15,000       15,000     10,200        800
1994                         18,500       18,500      4,700        800
1995                         15,000       15,000         \a         \a
1996                          7,500           \a         \a         \a
----------------------------------------------------------------------
\a Information not available. 



                               Table I.16
                
                 Budgetary Information for the Wetlands
                            Reserve Program

                         (Dollars in thousands)

                                                  Obligated  Obligated
                                     Appropriate    to land  for other
Year                      Requested            d      users      costs
------------------------  ---------  -----------  ---------  ---------
1992                       $124,400      $46,400         $0     $3,100
1993                        160,900            0      4,500      3,100
1994                        370,300       66,700     27,300      5,800
1995                        240,000       93,200         \a         \a
1996                        210,000           \a         \a         \a
----------------------------------------------------------------------
\a Information not available. 


AGREEMENTS SIGNED AND ACRES
COVERED UNDER USDA'S INCENTIVE-
BASED CONSERVATION PROGRAMS,
FISCAL YEARS 1992-94
========================================================== Appendix II

This appendix presents USDA's data on the number of agreements
signed, the number of acres covered, and the number of geographic
areas (states and territories) participating in each program for
fiscal years 1992 through 1994. 



                               Table II.1
                
                  Program Activity Information for the
                   Agricultural Conservation Program

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                        168,18  9,455,          51
                                                 5     122
1993                                        147,55  8,524,          51
                                                 8     916
1994                                        152,72  8,791,          51
                                                 9     475
----------------------------------------------------------------------


                               Table II.2
                
                  Program Activity Information for the
                 Colorado River Basin Salinity Control
                                Program

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                           672  29,108           3
1993                                         1,079  112,70           3
                                                         8
1994                                         1,092  59,716           3
----------------------------------------------------------------------


                               Table II.3
                
                  Program Activity Information for the
                      Conservation Reserve Program

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                        375,20  35,395          52
                                                 5    ,328
1993                                        375,20  36,422          52
                                                 5    ,772
1994                                        375,20  36,422          52
                                                 5    ,772
----------------------------------------------------------------------


                               Table II.4
                
                  Program Activity Information for the
                     Emergency Conservation Program

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                         5,813  1,046,          39
                                                       275
1993                                         6,667  1,370,          40
                                                       973
1994                                        15,862  930,08          39
                                                         8
----------------------------------------------------------------------


                               Table II.5
                
                  Program Activity Information for the
                   Emergency Wetland Reserve Program

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                            \a      \a          \a
1993                                             0       0           0
1994                                           618  57,124           6
----------------------------------------------------------------------
\a No program existed. 



                               Table II.6
                
                  Program Activity Information for the
                  Farm Debt Cancellation--Conservation
                           Easements Program

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                             2     177           2
1993                                             5     303           3
1994                                            16   1,571           7
----------------------------------------------------------------------


                               Table II.7
                
                  Program Activity Information for the
                         Forest Legacy Program

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                             6       0           4
1993                                            14   1,660           5
1994                                            37   3,694           6
----------------------------------------------------------------------


                               Table II.8
                
                  Program Activity Information for the
                      Forestry Incentives Program

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                         5,436  208,37          47
                                                         0
1993                                         5,548  214,00          45
                                                         2
1994                                         5,544  226,99          44
                                                         8
----------------------------------------------------------------------


                               Table II.9
                
                  Program Activity Information for the
                   Great Plains Conservation Program

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                         6,336  19,384          10
                                                      ,149
1993                                         6,761  19,884          10
                                                      ,202
1994                                         7,419  21,805          10
                                                      ,455
----------------------------------------------------------------------


                              Table II.10
                
                  Program Activity Information for the
                   Integrated Farm Management Program
                                 Option

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                            \a  40,273          24
1993                                            \a  119,20          24
                                                         7
1994                                            \a  106,22          23
                                                         7
----------------------------------------------------------------------
\a Information not available. 



                              Table II.11
                
                  Program Activity Information for the
                       Rural Clean Water Program

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                           275  16,458          15
1993                                           140   5,798          14
1994                                            73   2,420           8
----------------------------------------------------------------------


                              Table II.12
                
                  Program Activity Information for the
                        Small Watershed Program

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                           341  3,192,          42
                                                       090
1993                                           341  3,192,          42
                                                       090
1994                                           341  3,192,          42
                                                       090
----------------------------------------------------------------------


                              Table II.13
                
                  Program Activity Information for the
                Soil and Water Conservation Loan Program

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                           138      \a          \a
1993                                           123      \a          \a
1994                                           157      \a          \a
----------------------------------------------------------------------
\a Information not available. 



                              Table II.14
                
                  Program Activity Information for the
                     Stewardship Incentive Program

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                         1,741  123,65          44
                                                         2
1993                                         6,693  563,49          50
                                                         8
1994                                         8,929  574,27          50
                                                         0
----------------------------------------------------------------------


                              Table II.15
                
                  Program Activity Information for the
                           Water Bank Program

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                         1,045  114,30          12
                                                         0
1993                                         1,071  126,30          13
                                                         1
1994                                           630  68,956          12
----------------------------------------------------------------------


                              Table II.16
                
                  Program Activity Information for the
                   Water Quality Incentives Projects

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                           334  48,066          26
1993                                         2,657  250,98          41
                                                         7
1994                                         6,418  551,72          46
                                                         6
----------------------------------------------------------------------


                              Table II.17
                
                  Program Activity Information for the
                        Wetlands Reserve Program

                                            Agreem              Active
Year                                          ents   Acres       areas
------------------------------------------  ------  ------  ----------
1992                                            \a      \a          \a
1993                                           265  49,888           9
1994                                           673  75,000          20
----------------------------------------------------------------------
\a No program existed. 


PERCENT OF DOLLARS SPENT AND ACRES
COVERED, BY CONSERVATION PURPOSE,
UNDER USDA'S INCENTIVE-BASED
PROGRAMS, 1992-94
========================================================= Appendix III

This appendix analyzes data on each program's conservation purpose,
as classified by USDA under one of four categories:  soil erosion
control, water pollution abatement, fish and wildlife habitat
enhancement, and other (such as flood control, water conservation,
and forestry).  Data are presented as a percentage of the total acres
affected and the total dollars provided to land users by the program
for each fiscal year.  (Figures may not total 100 percent because of
rounding.) According to program officials, no data are available on
the purpose of individual soil and water conservation loans. 



                              Table III.1
                
                   Agricultural Conservation Program
                   Activity, by Conservation Purpose

                          (Figures in percent)

                                                                  Fish
                                                        Water      and
                            Measur  Erosion         pollution  wildlif
Year                        e       Control  Other  abatement        e
--------------------------  ------  -------  -----  ---------  -------
1992                        Acres        78     12         10        0
                            Dollar       59     21         20        0
                             s
1993                        Acres        74     14         11        0
                            Dollar       56     21         22        1
                             s
1994                        Acres        74     13         12        0
                            Dollar       57     21         21        1
                             s
----------------------------------------------------------------------


                              Table III.2
                
                 Colorado River Basin Salinity Control
                   Program Activity, by Conservation
                                Purpose

                          (Figures in percent)

                                                                  Fish
                                                        Water      and
                            Measur  Erosion         pollution  wildlif
Year                        e       control  Other  abatement        e
--------------------------  ------  -------  -----  ---------  -------
1992                        Acres         0      2         98        0
                            Dollar        0      2         98        0
                             s
1993                        Acres         0      0         99        1
                            Dollar        0      1         95        4
                             s
1994                        Acres         0      0         98        2
                            Dollar        0      1         96        3
                             s
----------------------------------------------------------------------


                              Table III.3
                
                 Conservation Reserve Program Activity,
                        by Conservation Purpose

                          (Figures in percent)

                                                                  Fish
                                                        Water      and
                            Measur  Erosion         pollution  wildlif
Year                        e       control  Other  abatement        e
--------------------------  ------  -------  -----  ---------  -------
1992                        Acres       100      0          0        0
                            Dollar       99      0          1        0
                             s
1993                        Acres        99      0          1        0
                            Dollar       99      0          1        0
                             s
1994                        Acres        99      0          1        0
                            Dollar       99      0          1        0
                             s
----------------------------------------------------------------------


                              Table III.4
                
                Emergency Conservation Program Activity,
                        by Conservation Purpose

                          (Figures in percent)

                                                                  Fish
                                                        Water      and
                            Measur  Erosion         pollution  wildlif
Year                        e       control  Other  abatement        e
--------------------------  ------  -------  -----  ---------  -------
1992                        Acres        30     69          0        0
                            Dollar       18     82          1        0
                             s
1993                        Acres        27     73          1        0
                            Dollar        8     92          1        0
                             s
1994                        Acres         8     92          0        0
                            Dollar        5     94          0        0
                             s
----------------------------------------------------------------------


                              Table III.5
                
                   Emergency Wetland Reserve Program
                   Activity, by Conservation Purpose

                          (Figures in percent)

                                                                  Fish
                                                        Water      and
                            Measur  Erosion         pollution  wildlif
Year                        e       control  Other  abatement        e
--------------------------  ------  -------  -----  ---------  -------
1992                        Acres        \a     \a         \a       \a
                            Dollar       \a     \a         \a       \a
                             s
1993                        Acres         0      0          0        0
                            Dollar        0      0          0        0
                             s
1994                        Acres         0    100          0        0
                            Dollar        0    100          0        0
                             s
----------------------------------------------------------------------
\a No program existed. 



                              Table III.6
                
                  Farm Debt Cancellation--Conservation
                     Easements Program Activity, by
                          Conservation Purpose

                          (Figures in percent)

                                                                  Fish
                                                        Water      and
                            Measur  Erosion         pollution  wildlif
Year                        e       control  Other  abatement        e
--------------------------  ------  -------  -----  ---------  -------
1992                        Acres        90     10          0        0
                            Dollar       53     47          0        0
                             s
1993                        Acres         7     83          0       10
                            Dollar       18     44          0       39
                             s
1994                        Acres        18     71          0       11
                            Dollar       13     66          0       21
                             s
----------------------------------------------------------------------


                              Table III.7
                
                   Forest Legacy Program Activity, by
                          Conservation Purpose

                          (Figures in percent)

                                                                  Fish
                                                        Water      and
                            Measur  Erosion         pollution  wildlif
Year                        e       control  Other  abatement        e
--------------------------  ------  -------  -----  ---------  -------
1992                        Acres         0    100          0        0
                            Dollar        0    100          0        0
                             s
1993                        Acres         0    100          0        0
                            Dollar        0    100          0        0
                             s
1994                        Acres         0    100          0        0
                            Dollar        0    100          0        0
                             s
----------------------------------------------------------------------


                              Table III.8
                
                Forestry Incentives Program Activity, by
                          Conservation Purpose

                          (Figures in percent)

                                                                  Fish
                                                        Water      and
                            Measur  Erosion         pollution  wildlif
Year                        e       control  Other  abatement        e
--------------------------  ------  -------  -----  ---------  -------
1992                        Acres         0    100          0        0
                            Dollar        0    100          0        0
                             s
1993                        Acres         0    100          0        0
                            Dollar        0    100          0        0
                             s
1994                        Acres         0    100          0        0
                            Dollar        0    100          0        0
                             s
----------------------------------------------------------------------


                              Table III.9
                
                   Great Plains Conservation Program
                   Activity, by Conservation Purpose

                          (Figures in percent)

                                                                  Fish
                                                        Water      and
                            Measur  Erosion         pollution  wildlif
Year                        e       control  Other  abatement        e
--------------------------  ------  -------  -----  ---------  -------
1992                        Acres        50     10         30       10
                            Dollar       50     10         30       10
                             s
1993                        Acres        50     10         30       10
                            Dollar       50     10         30       10
                             s
1994                        Acres        50     10         30       10
                            Dollar       50     10         30       10
                             s
----------------------------------------------------------------------


                              Table III.10
                
                   Integrated Farm Management Program
                Option Activity, by Conservation Purpose

                          (Figures in percent)

                                                                  Fish
                                                        Water      and
                            Measur  Erosion         pollution  wildlif
Year                        e       control  Other  abatement        e
--------------------------  ------  -------  -----  ---------  -------
1992                        Acres       100      0          0        0
                            Dollar      100      0          0        0
                             s
1993                        Acres       100      0          0        0
                            Dollar      100      0          0        0
                             s
1994                        Acres       100      0          0        0
                            Dollar      100      0          0        0
                             s
----------------------------------------------------------------------


                              Table III.11
                
                 Rural Clean Water Program Activity, by
                          Conservation Purpose

                          (Figures in percent)

                                                                  Fish
                                                        Water      and
                            Measur  Erosion         pollution  wildlif
Year                        e       control  Other  abatement        e
--------------------------  ------  -------  -----  ---------  -------
1992                        Acres         9      0         91        0
                            Dollar       19      0         81        0
                             s
1993                        Acres         2      0         98        0
                            Dollar        9      0         91        0
                             s
1994                        Acres         8      2         90        0
                            Dollar       19      2         79        0
                             s
----------------------------------------------------------------------


                              Table III.12
                
                  Small Watershed Program Activity, by
                          Conservation Purpose

                          (Figures in percent)

                                                                  Fish
                                                        Water      and
                            Measur  Erosion         pollution  wildlif
Year                        e       control  Other  abatement        e
--------------------------  ------  -------  -----  ---------  -------
1992                        Acres        71      3         26        0
                            Dollar       71      3         26        0
                             s
1993                        Acres        71      3         26        0
                            Dollar       71      3         26        0
                             s
1994                        Acres        71      3         26        0
                            Dollar       71      3         26        0
                             s
----------------------------------------------------------------------


                              Table III.13
                
                Stewardship Incentive Program Activity,
                        by Conservation Purpose

                          (Figures in percent)

                                                                  Fish
                                                        Water      and
                            Measur  Erosion         pollution  wildlif
Year                        e       control  Other  abatement        e
--------------------------  ------  -------  -----  ---------  -------
1992                        Acres         0    100          0        0
                            Dollar        0    100          0        0
                             s
1993                        Acres         0     96          0        4
                            Dollar        0     89          0       11
                             s
1994                        Acres         0     90          0       10
                            Dollar        0     87          0       13
                             s
----------------------------------------------------------------------


                              Table III.14
                
                    Water Bank Program Activity, by
                          Conservation Purpose

                          (Figures in percent)

                                                                  Fish
                                                        Water      and
                            Measur  Erosion         pollution  wildlif
Year                        e       control  Other  abatement        e
--------------------------  ------  -------  -----  ---------  -------
1992                        Acres         0      0          0      100
                            Dollar        0      0          0      100
                             s
1993                        Acres         0      0          0      100
                            Dollar        0      0          0      100
                             s
1994                        Acres         0      0          0      100
                            Dollar        0      0          0      100
                             s
----------------------------------------------------------------------


                              Table III.15
                
                   Water Quality Incentives Projects
                   Program Activity, by Conservation
                                Purpose

                          (Figures in percent)

                                                                  Fish
                                                        Water      and
                            Measur  Erosion         pollution  wildlif
Year                        e       control  Other  abatement        e
--------------------------  ------  -------  -----  ---------  -------
1992                        Acres         0      0        100        0
                            Dollar        0      0        100        0
                             s
1993                        Acres         0      0        100        0
                            Dollar        0      0        100        0
                             s
1994                        Acres         0      0        100        0
                            Dollar        0      0        100        0
                             s
----------------------------------------------------------------------


                              Table III.16
                
                 Wetlands Reserve Program Activity, by
                          Conservation Purpose

                          (Figures in percent)

                                                                  Fish
                                                        Water      and
                            Measur  Erosion         pollution  wildlif
Year                        e       control  Other  abatement        e
--------------------------  ------  -------  -----  ---------  -------
1992                        Acres        \a     \a         \a       \a
                            Dollar       \a     \a         \a       \a
                             s
1993                        Acres         0      0          0      100
                            Dollar        0      0          1       99
                             s
1994                        Acres         0      0          0      100
                            Dollar        1      1          1       97
                             s
----------------------------------------------------------------------
\a No program existed. 


TECHNICAL PRACTICES SHARED AMONG
11 USDA INCENTIVE-BASED
CONSERVATION PROGRAMS
========================================================== Appendix IV

Table IV.1 presents practices financed under four or more of the
following programs:  Agricultural Conservation Program (ACP),
Conservation Reserve Program (CRP), Colorado River Basin Salinity
Control Program (CRBSCP), Emergency Conservation Program (ECP), Great
Plains Conservation Program (GPCP), Rural Clean Water Program (RCWP),
Stewardship Incentive Program (SIP), Small Watershed Program (SWP),
Water Bank Program (WBP), Wetlands Reserve Program (WRP), Water
Quality Incentives Projects (WQIP). 



                                    Table IV.1
                     
                     Technical Practices Financed by Four or
                        More Incentive-Based Conservation
                                     Programs

                                                                             WQI
Technical practice    ACP  CRP  CRBSCP  ECP  GPCP  RCWP  SIP  SWP  WBP  WRP  P
--------------------  ---  ---  ------  ---  ----  ----  ---  ---  ---  ---  ---
Brush management      X                      X                X              X

Channel vegetation    X                      X     X          X

Conservation cover         X                 X                X         X    X

Conservation          X                      X     X                         X
cropping sequence

Conservation tillage  X                      X     X                         X

Contour farming       X                      X     X          X              X

Cover and green       X    X                 X     X                    X    X
manure crop

Critical area         X    X    X       X    X     X     X    X    X    X    X
planting

Crop residue use      X                      X     X                         X

Dike                  X    X                 X     X          X         X

Diversion             X    X            X    X     X          X         X

Fencing               X         X       X    X     X     X    X         X

Field borders         X                      X     X          X         X

Field windbreaks      X    X                 X     X     X    X

Filter strip          X    X                 X     X          X

Grade stabilization   X    X            X    X     X          X    X    X
structure

Grasses & legumes in  X                      X     X                         X
rotation

Grassed waterway      X    X    X       X    X     X          X         X

Grazing land          X                      X                X              X
mechanical treatment

Heavy use area        X                      X     X          X
protection

Irrigation canal or   X         X       X    X                X
lateral

Irrigation field      X         X       X    X                X
ditch

Irrigation land       X         X       X    X     X          X
leveling

Irrigation pit or     X         X       X    X                X
regulating reservoir

Irrigation system,    X         X       X    X     X     X    X
sprinkler

Irrigation system,    X         X       X    X     X     X    X
surface & subsurface

Irrigation system,    X         X       X    X     X          X
tailwater recovery

Irrigation system,    X    X    X       X    X     X     X    X
trickle (drip)

Irrigation water      X         X       X    X     X          X
conveyance, ditch, &
canal lining

Irrigation water      X         X       X    X     X          X
conveyance, pipeline

Irrigation water      X                      X     X                         X
management

Land smoothing        X         X       X    X     X          X

Lined waterway or     X    X            X    X     X          X
outlet

Livestock exclusion   X                      X     X               X         X

Mulching              X                 X    X     X     X    X              X

Nutrient management   X                      X     X     X                   X

Obstruction removal   X                 X    X     X          X

Pasture and hayland   X    X                 X     X               X    X    X
management

Pasture and hayland   X    X            X    X     X          X    X    X    X
planting

Pest management       X                      X     X                         X

Pipeline              X                 X    X     X          X

Pond                  X    X    X       X    X     X          X    X    X

Pond sealing or       X                 X    X     X          X
lining

Prescribed burning                           X           X    X    X         X

Pumping plant for                            X     X          X         X
water control

Range seeding         X    X                 X     X          X    X         X

Regulating water in                          X                X         X    X
drainage system

Roof runoff           X                      X     X          X
management

Sediment basin        X    X    X       X    X     X          X         X

Spring development    X                 X    X     X     X    X

Streambank and        X                      X     X     X    X
shoreline protection

Stripcropping,        X    X                 X     X          X              X
contour

Stripcropping, field  X                      X     X          X              X

Stripcropping, wind   X    X                 X     X          X              X

Structure for water   X    X    X       X    X     X          X    X    X
control

Subsurface drain      X    X    X       X    X     X          X         X

Surface drainage,     X                 X    X     X          X
field ditch

Surface drainage-     X                      X     X          X
main or lateral

Terrace               X    X            X    X     X          X

Toxic salt reduction  X    X    X            X                X              X

Tree planting         X    X                 X     X          X         X

Trough or tank        X                 X    X     X          X

Underground outlet    X    X            X    X     X          X         X

Waste management      X                      X     X          X              X
system

Waste storage pond    X                 X    X     X          X

Waste storage         X                 X    X     X          X
structure

Waste treatment       X                 X    X     X          X
lagoon

Waste utilization     X                      X     X          X              X

Water and sediment    X    X            X    X     X          X         X
control basin

Well                  X                 X    X     X

Wildlife upland       X    X    X            X           X         X    X    X
habitat management

Wildlife wetland      X    X    X            X           X         X    X    X
habitat management

Windbreak renovation  X                 X    X           X                   X
--------------------------------------------------------------------------------

MAJOR CONTRIBUTORS TO THIS REPORT
=========================================================== Appendix V

RESOURCES, COMMUNITY, AND ECONOMIC
DEVELOPMENT DIVISION, WASHINGTON,
D.C. 

Juliann M.  Gerkens, Assistant Director
Carolyn R.  Kirby, Project Leader
Eileen M.  Cortese, Senior Evaluator
Carol Herrnstadt Shulman, Communications Analyst


*** End of document. ***