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Related Amber Waves Articles
Marketing Assistance Loans and Loan
Deficiency Payments
Direct and Counter-Cyclical
Payments
Average Crop Revenue Election
Program
Payment Limits
Crop and Revenue Insurance
Environment and Conservation
Programs
Export and Food Aid Programs
Ethanol Policy
The Food, Conservation, and Energy Act of 2008 (2008 Farm Act)
provides feed grain (corn, grain sorghum, barley, and oats)
producers access to marketing loan benefits, direct payments (DPs),
counter-cyclical payments (CCPs), and average crop revenue election
(ACRE) payments. In addition, many producers may benefit from
subsidized crop and revenue insurance available under previous
legislation, as well as from new permanent disaster assistance.
Moreover, feed grain producers are affected by conservation and
trade programs. Ethanol policies and clean air regulations also
have an impact on feed grain markets.
Under the 2008 Farm Act, program participants are given almost
complete flexibility in deciding which crops to plant. Farmers are
permitted to plant all cropland acreage on the farm to any crop,
with some limitations on planting fruits and vegetables on acreage
eligible for DPs and CCPs. Eligibility for DPs and CCPs is based on
historical production parameters, and no commodity production is
required to receive payments, but the land must be kept in
agricultural use (which includes fallow). Participants in all
programs must comply with certain conservation and wetland
provisions.
General information follows on government programs affecting
feed grain producers' management decisions and incomes.
Marketing Assistance Loans and Loan
Deficiency Payments
The 2008 Farm Act extends nonrecourse commodity loans with
marketing loan provisions for crop years 2008-12. All current feed
grain production is eligible for the program. National loan rates
are set in the legislation.
National loan
rates |
Commodity |
Crop years |
2008-09
|
2010-12 |
Corn |
$1.95/bushel |
$1.95/bushel |
Grain sorghum |
$1.95/bushel |
$1.95/bushel |
Barley |
$1.85/bushel |
$1.95/bushel |
Oats |
$1.33/bushel |
$1.39/bushel |
The marketing assistance loan program provides short-term
financing in all price environments, as well as assists producers
when market prices are low. Because the loans are nonrecourse,
producers may forfeit the crop rather than pay back the loan if
prices fall below the loan rate plus interest.
To avoid forfeitures, the marketing loan provisions allow
producers to repay commodity loans at a rate less than the original
loan rate plus interest when posted county prices (PCPs) are below
commodity loan rates plus interest. USDA operates the program in
this manner to minimize potential commodity loan forfeitures and
subsequent government accumulation of stocks. When producers repay
their nonrecourse commodity loans to USDA's Commodity Credit
Corporation (CCC) at a rate less than the loan rate, the difference
between the two rates is called a marketing loan gain (MLG) and
represents a program benefit to producers. In addition, any accrued
interest on the loan is waived.
If producers choose not to participate in the loan program, they
still have the opportunity to receive an equivalent benefit in the
form of a loan deficiency payment (LDP). In this case, the producer
can opt to receive a one-time payment on harvested production at
any time PCPs are below commodity loan rates during the term of the
loan. The difference between the PCP and the loan rate is the LDP
rate. Producers can also receive an LDP if their crop is cut for
silage. LDPs for grazed-out crops continue for barley, oats, wheat,
and triticale.
Direct and
Counter-Cyclical Payments
Direct and counter-cyclical payments are available to eligible
landowners and producers with feed grain base acres who enter into
an annual agreement with USDA's Farm Services Agency (FSA). Base
acres and payment yield for direct and counter-cyclical payments
are unchanged from the 2002 Farm Act. Payment acres for direct
payments are reduced to 83.3 percent of base acres for crop years
2009-11. Payment acres for CCPs are unchanged at 85 percent of base
acres.
Direct payments for crop years 2008-12 are made based on fixed
rates set in the 2008 Farm Act. For producers with eligible
historical corn, grain sorghum, barley, and oats base acreage, the
amount of the direct payment equals the product of the payment rate
for the specific crop, a producer's historical payment acres (85
percent of base acres in crop years 2008 and 2012 and 83.3 percent
in crop years 2009-11), and a producer's historical payment yield
for the farm.
For producers with eligible historical corn, grain sorghum,
barley, and oats base acreage, counter-cyclical payments are paid
whenever a commodity's target price is greater than the calculated
effective price for that commodity. Target prices for crop years
2008-12 are specified in the 2008 Farm Act. The effective price is
equal to the sum of 1) the direct payment rate for the commodity,
and 2) the higher of the national average farm price for the
marketing year or the national loan rate for the commodity. The
maximum CCP rates (target price minus direct payment rate minus
loan rate) are shown in the table.
Item |
Crop
years |
Corn |
Grain sorghum |
Barley |
Oats |
Direct
payment
rate |
2008-12 |
$0.28/bushel |
$0.35/bushel |
$0.24/bushel |
$0.024/bushel |
Target
price |
2008-09 |
$2.63/bushel |
$2.57/bushel |
$2.24/bushel |
$1.44/bushel |
2010-12 |
$2.63/bushel |
$2.63/bushel |
$2.63/bushel |
$1.79/bushel |
Maximum
CCP |
2008-09 |
$0.40/bushel |
$0.27/bushel |
$0.15/bushel |
$0.09/bushel |
2010-12 |
$0.40/bushel |
$0.33/bushel |
$0.44/bushel |
$0.38/bushel |
For example, the minimum effective corn price is $2.23 per
bushel--the sum of the direct payment (28 cents) and the national
loan rate ($1.95). The maximum payment rate for corn is 40 cents
per bushel--the target price ($2.63) minus the minimum effective
price ($2.23). The payment amount equals the product of the payment
rate, a producer's historical payment acres (85 percent of base
acres), and a producer's historical CCP yield, which may differ
from the DP payment yield.
Average Crop
Revenue Election Program
The ACRE program is a new program in the 2008 Farm Act and is
administered by FSA. Beginning with the 2009 crop year, producers
of feed grains and other crops can elect this optional,
revenue-based counter-cyclical program, which is an alternative to
receiving CCPs. However, producers who choose to participate in
ACRE also face reduced DPs and lower marketing assistance loan
rates.
Producers may elect the ACRE alternative on a farm-by-farm basis
for crop years 2009-12. Once in ACRE, the farm must remain in the
program through crop year 2012. After electing ACRE, the producer
must enroll annually to receive payments. Commodities eligible for
ACRE payments are all covered commodities (wheat, corn, grain
sorghum, barley, oats, upland cotton, rice, soybeans, other
oilseeds, dry peas, lentils, small chickpeas, and large chickpeas)
and peanuts for a participating farm. Also, as a condition for the
farm's enrollment in ACRE, DPs for the farm are based on 80 percent
of the legislated DP rate, and marketing loan benefits are based on
70 percent of the legislated national marketing loan rate.
The ACRE program provides participating producers a revenue
guarantee each year based on national market prices and State-level
average planted yields for the respective commodities. The
guarantee is based on a 5-year Olympic average of State-level
planted yields and a 2-year average of national market prices, but
payments depend on crop year State- and farm-level planted yields
and national market prices. ACRE payments are made if:
1) the actual State revenue per acre falls below the State
guarantee per acre
AND
2) actual farm revenue per planted acre falls below the farm
benchmark revenue per acre.
State-level ACRE payments, if triggered, are paid on 83.3
percent (in crop years 2009-11) or 85 percent (in crop year 2012)
of the acreage planted or considered planted to covered commodities
and peanuts on the farm. The acreage for ACRE payments may not
exceed total base acreage for all covered commodities and peanuts
on the farm. Payments are adjusted to farm-specific relative
productivity using a ratio of the ACRE benchmark State yield to the
farm's 5-year Olympic average crop yield per planted acre.
Payment
Limits
The 2008 Farm Act sets the payment limit for DPs at $40,000 per
person or legal entity and for CCPs at $65,000. There are no longer
payment limits for marketing loan benefits (MLGs and LDPs).
Payments are attributed directly to individuals, with spouses
potentially eligible for a full share. The three-entity rule is
eliminated. Authority for commodity certificates--formerly
available as an alternative to marketing loan gains when payment
limits were in force--ends after crop year 2009.
Producers with an adjusted gross farm income of more than
$750,000 (averaged over 3 years) are not eligible for direct
payments, but remain eligible for other program payments. Persons
or entities with average adjusted gross nonfarm income in excess of
$500,000 (averaged over 3 years) are not eligible for direct and
counter-cyclical payments, ACRE payments, marketing loan benefits,
or disaster payments.
Crop and Revenue
Insurance
Adverse weather, as well as insect and weed infestations, can
reduce a farmer's yields and result in below-normal revenue in any
year. Low prices can also reduce revenue. Feed grain producers can
purchase crop insurance to guard against yield risk and can buy
revenue insurance for protection against revenue losses regardless
of the source of loss. USDA's Risk Management Agency pays a portion of
producers' premium costs for insurance policies and also pays some
of the delivery and administrative costs of private insurance
companies that handle policy sales.
Supplemental Agricultural Disaster Assistance, created in the
2008 Farm Act, provides disaster assistance payments to producers
of eligible commodities (crops, farm-raised fish, honey, and
livestock) in counties declared by the Secretary of Agriculture to
be "disaster counties," including counties contiguous to disaster
counties, as well as any farms with losses in normal production of
more than 50 percent.
Environment and Conservation
Programs
The 2008 Farm Act expands support for conservation practices on
all cultivated land (including fallow). To remain eligible for
specified program benefits, farmers cropping highly erodible land
are required to implement an approved conservation plan (highly
erodible land conservation provisions or sodbuster) and to be in
compliance with wetland conservation provisions (swampbuster).
Programs, such as the Environmental Quality Incentives Program
and the new Conservation Stewardship Program, provide assistance on
lands in production. Land retirement programs--including the
Conservation Reserve Program, the Conservation Reserve Enhancement
Program, and the Wetlands Reserve Program--remove environmentally
sensitive land from production and establish long-term,
resource-conserving cover. The acreage cap for the Conservation
Reserve Program is scheduled to decline from 39.2 million acres to
32 million acres beginning in fiscal year 2010 under the 2008 Farm
Act.
Export and Food
Aid Programs
Export programs administered by USDA's Foreign
Agricultural Service (FAS) and the U.S. Agency for
International Development (USAID) help promote and facilitate
purchase of U.S. feed grains in foreign markets. These programs
include the Export Credit Guarantee Program, the Market Access
Program, and the Foreign Market Development Program.
Export credit guarantees are designed to help foreign importers
facing foreign exchange constraints and needing credit to purchase
commodities. The Export Credit Guarantee Program (GSM-102)
underwrites commercial financing of U.S. agricultural exports by
guaranteeing repayment of private, short-term credit for up to 3
years. The CCC does not provide financing but guarantees payments
due from foreign banks, which allows U.S. financial institutions to
offer competitive credit terms to foreign banks.
The Market Access Program (MAP) aids in the
creation, expansion, and maintenance of foreign markets for U.S.
agricultural products. MAP forms partnerships between USDA's CCC
and nonprofit trade associations, cooperatives, trade groups, or
small businesses to share the cost of overseas marketing and
promotional activities. MAP partially reimburses program
participants for these activities, which include consumer
promotions, market research, trade shows, and trade servicing.
The Foreign Market Development Program, also known
as the Cooperator Program, aids in the creation, expansion, and
maintenance of long-term export markets for U.S. agricultural
products. The program enlists private sector involvement and
resources in coordinated efforts to promote U.S. products to
foreign importers and consumers around the world. CCC funds are
used to partially reimburse cooperators conducting approved
overseas promotion activities.
In addition, as part of U.S. food-aid programs, USDA and USAID
provide food aid overseas through the P.L. 480 program, the Section
416 program, and the Food for Progress (FFP) program. Food-aid
sales, however, account for a very small portion of U.S. feed grain
exports.
Ethanol
Policy
Fuel ethanol (ethyl alcohol denatured with gasoline) can be used
as a gasoline additive to reduce the carbon monoxide content of
engine exhaust and to increase gasoline's octane rating, which
reduces engine knock. Ethanol is made by fermenting and distilling
simple sugars. Corn is the primary feedstuff used to produce
ethanol; however, other grains (especially sorghum) are also
important.
Policy incentives underlie the interest in ethanol. The Energy
Policy Act of 2005 (P.L. 109-58) established a renewable fuels
standard (RFS), which mandated the use of renewable fuels in
gasoline. The U.S. Government blender tax credit, various State
production subsidies, and some States' required use of fuel
alcohol, as well as the cost and availability of substitute fuel
additives, affect the amount of ethanol used.
The Energy Independence and Security Act of 2007 (P.L. 110-140)
required the use of 9.0 billion gallons of renewable fuels in 2008,
increasing each year until use reaches 36 billion gallons in 2022.
In addition, the Act requires that an increasing share of the
mandate be met with advanced biofuels, which are biofuels produced
from feedstocks other than corn starch (and with 50 percent
lower-lifecycle greenhouse gas emissions than petroleum fuels).
Potential advanced biofuels include ethanol from cellulosic
material (such as perennial grasses and municipal solid waste),
ethanol from sugarcane, and diesel fuel substitutes produced from a
variety of feedstocks.
Corn used for fuel alcohol production increased from less than 1
percent of total U.S. domestic corn use in 1980/81 to almost 25
percent of total U.S. domestic corn use in 2007/08. This large and
rapid expansion of U.S. ethanol production affects virtually every
aspect of the field crops sector, ranging from domestic demand and
exports to prices and the allocation of acreage among crops. Many
aspects of the livestock sector are affected too. As a consequence
of these commodity market impacts, farm income, government
payments, and food prices also change. Adjustments in the
agricultural sector are already underway and will continue for many
years as interest grows in renewable sources of energy to lessen
dependence on foreign oil.