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Budget estimates for the United States Department of Agriculture, for the fiscal year ending Sept. 30, 1991 PDF

170 Pages·1991·14.3 MB·English
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Preview Budget estimates for the United States Department of Agriculture, for the fiscal year ending Sept. 30, 1991

Historic, Archive Document Do not assume content reflects current scientific knowledge, policies, or practices. BUDGET ESTIMATES FOR THE UNITED STATES DEPARTMENT OF AGRICULTURE FOR THE FISCAL YEAR ENDING SEPTEMBER 30, 1991 A SEPARATE FROM THE BUDGET OF THE UNITED STATES GOVERNMENT 1991 BUDGET ESTIMATES FOR THE UNITED STATES DEPARTMENT OF AGRICULTURE FOR THE FISCAL YEAR ENDING SEPTEMBER 1991 30, A Separate from the Budget ofthe United States Government 1991 GOVERNMENT PRINTING OFFICE U.S. WASHINGTON: 1990 TABLE OF CONTENTS SUMMARY MATERIALS Page Advance Appropriations, Advance Funding, and Forward Funding for 1991 A-1209 Baseline Estimates A-27 Budget Authority and Outlays by Department A-298 Civilian Employment in the Executive Branch A-77 Federal Programs by Functions A-145 Glossary of Budget Terms A-1231 Rescission ofBudget Authority A-1211 Statement ofAmendments to and Revisions in Budget Authority for 1990 A-1210 Summary ofReceipts, Outlays, and Surpluses or Deficits A-281 Supplementals A-1205 USDA Programs by Agency and Account A-173 ESTIMATES OF CURRENT APPROPRIATIONS IN DETAIL Agricultural Cooperative Service A-513 Agricultural Marketing Service A-501 Agricultural Research Service A-442 Agricultural Stabilization and Conservation Service A-456 Animal and Plant Health Inspection Service ...A-496 Commodity Credit Corporation A-464 Cooperative State Research Service A-445 Departmental Administration A-436 Economic Research Service A-449 Extension Service A-446 Farmers Home Administration A-477 Federal Crop Insurance Corporation A-461 Federal Grain Inspection Service A-498 Food and Nutrition Service A-508 Food Safety and Inspection Service A-506 Foreign Agricultural Service A-451 Foreign Assistance Programs A-454 Forest Service A-514 iii Page General Provisions: Department ofAgriculture A-528 Forest Service (Administrative Provisions) A-527 Governmentwide A-345 Human Nutrition Information Service A-512 National Agricultural Library A-448 National Agricultural Statistics Service A-448 Office ofInternational Cooperation and Development A-452 Office ofPublic Affairs A-440 Office of the General Counsel A-442 Office of the Inspector General A-441 Office of the Secretary A-435 Office ofTransportation A-506 Packers and Stockyards Administration A-513 Rural Electrification Administration A-471 Soil Conservation Service A-489 World Agricultural Outlook Board A-450 IV A-28 THE BUDGET FOR FISCAL YEAR 1991 thority will terminate as scheduled. Only certain expir- estimates, even though the workload at the Census ing programs identified in the G-R-H law are continued Bureau is anticipated to be less in 1991 than in 1990. in the baseline.^ Provisions expiring after 1991, howev- The baseline, therefore, overstates anticipated Census er, are assumed to continue in the baseline unless they outlays by about $1.0 billion. are clearly temporary in nature. For subsidized housing, budget authority appropri- Major programs scheduled to expire in 1991 and thus ated in 1990 reflects in part the renewal of more than excluded from the baseline are presented in Table A-2. 42,000 multi-year contracts for subsidized housing first The largest such program is food stamps. The food entered into in the 1970s. In 1991, nearly 295,000 of stamp program and nutrition assistance to Puerto Rico, these contracts are anticipated to expire, a seven-fold which are authorized by the Food Stamp Act of 1977, increase over the 1990 level. The baseline estimates, by are scheduled to expire on September 30, 1990. If the merely inflating the 1990 level, include budget author- baseline had assumed the extension of these two pro- ity that is about $6.6 billion below the amount needed grams under current law, baseline outlays would have to renew these expiring contracts and maintain the been $16.2 billion higher. Two Customs Service fees are current stock of subsidized housing. Because these are generally multi-year commitments, however, the outlay also scheduled to expire on September 30, 1990. Exclud- impact of understating the budget authority needed to iR1en9cg9o1tnhcoeiusltielaaotyfisfosnbeyttA$ic0nt.g9robeficlel1iip9ont8.s9Af(rpOormBoRvtiAhseio1bn9a8si9en;litnPheuebiOlnimccnrieLabsauewss msiadienrtaabilny stmhaellceurr,reanbtoultev$e0l.4ofbislulbisoni.dized housing is con- 101-239) permitted the Federal Government to pay out Budget authority of $2.8 billion was appropriated in 1990 for disaster assistance to aid primarily the victims retirees’ own retirement contributions in two lump-sum ofthe earthquake in San Francisco. This budget author- payments over two years. This authority expires at the ity is inflated in the baseline for 1991 through 1995. end of the current fiscal year, requiring the Govern- Because these funds were provided in 1990 for specific ment to pay lump-sum retirement benefits in one pay- disaster relief purposes, however, the baseline assumes ment and thus increasing estimated baseline outlays by that no outlays are associated with this inflated disas- $0.7 billion in 1991. ter reliefbudget authority in 1991 through 1995. Finally, the totals for nondefense discretionary pro- TableA-2. IMPACTOFMAJOREXPIRING PROVISIONSON BASELINEOUTLAYS grams include an aggregate spendout rate adjustment (Inbillionsofdollars) required by the G-R-H law. This adjustment, which in- 1991estimate creases outlays by $0.1 billion in 1991 only, is discussed in more detail in conjunction with the G-R-H sequester FnnH -15.3 estimates. Niitritinn aQ^i^tanrptnPiiprtn Ri«) -0.9 — -0.1 Economic assumptions. The baseline estimates are MiirlBarRpoiilatnrv fpp 0.1 based on the same economic assumptions as the Presi- 0.7 dent’s budget proposals. The economic assumptions PiKtnm?f^ruirpfpp^ 0.9 assume that all the President’s budget proposals will be adopted. Continuation of all programs and tax laws — unchanged would result in different economic condi- Discretionary programs. The baseline estimates for tions than would occur under the budget proposals. both defense and nondefense discretionary programs Changes in economic conditions significantly affect are based on the enacted 1990 appropriations level ad- budget estimates because of their effects on tax re- justed for inflation and pay costs. This formula is con- ceipts, unemployment benefits, interest on the Federal sistent with the G-R-H law. debt, and other programs where spending is sensitive to By adjusting for the impact ofinflation and pay costs, economic factors. As a result, if different economic as- the baseline estimates for discretionary programs gen- sumptions were used in developing the baseline and erally reflect a continuation of the 1990 program level policy estimates, it would be very difficult to separate in real terms. Anomalies may result, however, particu- the effects of policy differences from the effects of dif- larly for programs that have sporadic or cyclical fund- ferences in the economic assumptions. ing patterns. For instance, the Census Bureau received The economic assumptions common to the budget and a larger than usual 1990 appropriation to fund the in- the baseline estimates are summarized in Table A-3. In creased workload eissociated with conducting the decen- addition, the G-R-H law requires that the assumptions nial census. This 1990 appropriation is automatically used for the real rate of growth for the last two quar- inflated in developing the 1991 Census Bureau baseline ters of fiscal year 1990 and for each quarter of fecal year 1991 be presented. These estimates are included in Table A-4. For further details and discussion of the fol*lTohwiengG-cRas-eHs:laexwciaslelotwasxefsordetdhiecactoendtitnouaatitornusitnftuhnedb(absuetlinneotofspeexnpdiirnigngauptrhoogrriatmysinintthhaet sensitivity of the estimates to the selected economic trust fund); Commodity Credit Corporation price support programs; contract authority for assumptions, see “Note on Economic Assumptions and transportationtrustfunds;andauthoritytoprovideinsurancethroughtheFederalHousing Administrationfund. Sensitivities” in Section 'Two. BASELINE ESTIMATES A baseline presents budget estimates against which anomalies. For example, the baseline assumes that the alternative budget proposals can be compared. In recent food stamp program, which expires at the end of 1990, years, the Presiden—t’s budget has presented two sets of will not be renewed, while the 1990 decennial census baseline estimates current services and those required will be repeated. After adjusting the baseline for the by the Balanced Budget and Emergency Control Act of impact of these two anomalies, administration propos- R19u8d5m,aans-Haomlelnidnegds ionr 1G9-8R7-H()c.omTmoonalllyevkinatoewncoansfuGsiroanmmre-- als would reduce the baseline deficit by $37.4 billion in sulting from multiple baselines, a single set of baseline 1991. Ifthe administration’s budget is scored on a G-R-H estimates is presented here. This baseline conforms to basis, these 1991 savings are reduced by $0.9 billion. G-R-H requirements, and thus will be used to determine Comparisons between the baseline and administration whether automatic spending reductions are necessary budget under selected definitions are presented in more to meet the 1991 deficit target set in the G-R-H law. detail in “Director’s Introduction to the New Budget” This part describes the specific concepts used in de- in Section One. veloping the baseline and discusses baseline receipt, outlay, and budget authority estimates. The part also Relative to the adjusted baseline, cumulative deficit discusses the G-R-H sequester estimates. reduction between 1991 and 1995 proposed by the ad- Table A-1 compares baseline and administration ministration totals $319.4 billion, excluding payments budget receipt, outlay, and surplus/deficit estimates for to the Social Security Integrity and Debt Reduction 1989 through 1995.^ The administration’s proposals Fund. These payments, which would begin in 1993, total would reduce the baseline budget deficit by $21.6 billion $169.5 billion between 1993 and 1995. This proposal is in 1991. As a result of meeting the strict requirements discussed in more detail in “Acknowledging Inherited of the G-R-H law, however, the baseline reflects some Claims” in Section One. TableA-1. BASELINEANDADMINISTRATION BUDGETTOTALS, 1989-1995 (Inbillionsofdollors) Estimate 1990 1991 1992 1993 1994 19!/5 Baselineestimates: Receipts 990.7 1.072.8 1,156.3 1,234.9 1.323.5 1,401.9 14808 Outlays 1,142.6 1.194.8 1,241.0 1,290.4 1.343.6 1,394.0 1,4444 Surplusordeficit (—) -152.0 -122.0 -84.7 -55.5 -20.1 7.9 ' 36.3 Impactofadministrationpolicyproposals: Receipts 0.6 13.9 11.4 4.1 6.7 56 Outlays 2.4 -7.7 -19.0 -21.8 40 325 Surplusordeficit (-) -1.8 21.6 30.4 25.9 2.7 -26.9 Administrationbudget: Receipts 990.7 1,073.5 1.170.2 1,246.4 1,327.6 1,408.6 1,486.3 Outlays 1,142.6 1,197.2 1.233.3 1,271.4 1,321.8 1,398.0 1,476.9 Surplusordeficit (—) -152.0 -123.8 -63.1 -25.1 5.7 10.7 9.4 — Baseline Concepts Mandatory programs and receipts. The baseline esti- An important principle in establishing baseline esti- mates presented here for mandatory programs and re- mates is to make the results useful to the Congress and ceipts reflect the future implications ofcurrent law and the public. The concepts used in this analysis are not final regulations. They also include anticipated changes the only ones possible. Different concepts may be useful of a relatively uncontrollable nature (as distinct from for different purposes. Only for fulfilling the require- policy changes), such as increases in the number of ments ofthe G-R-H law is a specific baseline prescribed. medicare beneficiaries. The impact ofall new legislative initiatives, whether presidential or congressional, are ‘TheOmnibusReconciliation Actof1989(PublicLaw 101-239)movedthePostalService off-budget and required that its outlays be excluded from the G-R-H deficit calculation. omitted. In 1991, the baseline assumes that expiring Cofofn-sbeuqdugeenttployr,tiPoonstoafltSheeravdimcieniessttriamtaitoens'sarbeudngoett.inthebaselineandareincludedonlyinthe provisions of law providing revenues and spending au- A-27

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