Introduction

The U.S. Department of Agriculture's (USDA's) Foreign Agricultural Service (FAS) is a key federal government agency involved in shaping U.S. agricultural trade policy. Agricultural trade plays an important role for U.S. agriculture that relies on overseas markets and consumers. Congress has provided direction for U.S. policies in agricultural trade and international cooperation. This includes establishing related programs administered by FAS through legislation, particularly through the farm bill, an omnibus and multiyear law that governs agricultural and food programs.¹

This report provides first an overview of the importance of U.S. agricultural trade. It then addresses FAS's creation, structure, and global footprint. It further identifies FAS's roles in implementing U.S. agricultural trade policy, international agricultural market intelligence and analysis, export promotion, and food and technical assistance programs. It then provides potential considerations for Congress in the context of programs authorized in the farm bill.

Importance of U.S. Agricultural Trade

The United States is one of the top exporters of agricultural and food products, with exports reaching $196 billion in 2022 (see Figure 1).² Exports to foreign markets contribute to the overall health of the U.S. agricultural and food sectors, accounting for approximately 20% of total U.S. agricultural and food production by value annually since 2001.³ Agricultural and food product exports represent about 10% of total U.S. merchandise exports by value.⁴ Although the United States is a major exporter of agricultural products throughout the world, U.S. exports face challenges from foreign competition and trade barriers imposed by foreign governments. U.S. exports of agricultural and food products are varied, as are their destinations. In addition, in 2022, the United States imported $198 billion in agricultural products, which provided U.S. consumers more choice, variety, and product availability as well as more competition for certain U.S. producers.

Figure 1. U.S. Agricultural Exports and Imports, 2013-2022

Source: U.S. Census Bureau Trade Data via U.S. Department of Agriculture (USDA), Foreign Agricultural Service (FAS), "Global Agricultural Trade System Online: GATS Home," BICO-10, August 2023, https://apps.fas.usda.gov/gats/default.aspx. Note: Data are not adjusted for inflation.

USDA's Foreign Agricultural Service: Creation and Background

FAS is the agency within USDA that carries out the agricultural trade policy of the United States, and it is the lead U.S. agency tasked with promoting exports of U.S. agricultural products.⁵ The Secretary of Agriculture established FAS on March 10, 1953.⁶ FAS falls under USDA's Trade and Foreign Agricultural Affairs mission area, which has "the primary responsibility of ensuring USDA speaks with a unified voice on international agricultural issues domestically and abroad."⁷

The Agricultural Trade Act of 1978 (P.L. 95-501, §503; 7 U.S.C. §5693), as amended, instructs FAS to assist the Secretary of Agriculture to carry out the agricultural trade and international cooperation policies of the United States by

• acquiring information pertaining to agricultural trade;
• carrying out market promotion and development activities;
• providing agricultural technical assistance and training; and
• carrying out the programs authorized under this act, the Food for Peace Act (7 U.S.C. §§1691 et seq.),⁸ and other acts.

The current FAS organizational structure has four main units that carry out policies and programs for agricultural trade and international cooperation:

• 1. Trade Policy and Geographic Affairs carries out trade policy functions.
• 2. Global Market Analysis conducts international market, trade, and production analysis.
• 3. Global Programs administers market development and export promotion programs as well as food and technical assistance programs.
• 4. Foreign Affairs supports FAS policies overseas.⁹

In September 2022, FAS reported 614 permanent full-time employees, 147 temporary and term employees, and an additional 360 locally employed staff (foreign nationals).¹⁰ Congress funds FAS and its programs through annual discretionary appropriations and mandatory funding (see Table 1).¹¹

FAS's Overseas Footprint

FAS's overseas presence can be traced to the Agricultural Act of 1954 (P.L. 83-690, Title VI; 7 U.S.C. §§1761 et seq.), which authorized the Secretary of Agriculture to appoint and oversee agricultural attachés in cooperation with the Secretary of State.¹² The Foreign Service Act of 1980 (P.L. 96-465, 22 U.S.C. §3922) authorized USDA to use the Foreign Service personnel system to consolidate and simplify the authorities of U.S. foreign affairs agencies.¹³

FAS has over 100 U.S. employees and 360 locally employed staff based in approximately 95 field offices globally that cover more than 170 countries and territories around the world (see Figure 2).¹⁴ Most of the overseas FAS offices are designated Offices of Agricultural Affairs (OAAs) within U.S. embassies or consulates. OAAs carry out the mission of FAS overseas, which could include advocating U.S. agricultural trade policy interests by engaging with host foreign governments; reporting on developments in foreign agricultural sectors; supporting FAS export promotion and capacity-building programs; assisting U.S. exporters in foreign markets or foreign importers seeking U.S. suppliers; and supporting congressional delegation visits.¹⁵

Figure 2. FAS Offices and Global Coverage

Source: Figure created by CRS based on USDA, FAS, "International Offices Directory," October 2023, https://www.fas.usda.gov/international-offices.

Title IV of the Agricultural Trade Act of 1978 (P.L. 95-501, 7 U.S.C. §§1765a et seq.) established overseas Agricultural Trade Offices (ATOs) for the purpose of export promotion and market development. ATOs aid in connecting U.S. suppliers and foreign buyers, and they organize export promotion activities, such as trade shows.¹⁶ Currently, there are 13 ATOs located in the Americas and East Asia.¹⁷

Role of FAS in U.S. Trade Policy

The executive branch's overall trade policy is the responsibility of the Office of the United States Trade Representative (USTR), which works with other executive branch departments and agencies, including with FAS on agricultural trade matters.¹⁸ FAS conducts the functions of USDA related to laws affecting international agricultural trade, which include programs designed to reduce foreign tariffs and other trade barriers (7 C.F.R. §2.601(a)(2)).

FAS's trade policy mission is to expand and maintain "access to foreign markets for U.S. agricultural products by removing trade barriers and enforcing U.S. rights under existing trade agreements" by working with other U.S. government agencies, industry stakeholders, foreign governments, and international organizations.¹⁹ Several statutes direct the U.S. agricultural trade policy that FAS supports in carrying out, including the following examples:

• The Food Security Act of 1985 (P.L. 99-198, 7 U.S.C. §§1736p et seq.), as amended, declares the agricultural trade policy of the United States, as follows: (1) be the premier world supplier of agricultural and food products; (2) support free and fair trade; (3) negotiate further reductions of foreign tariff and nontariff barriers (NTBs), including sanitary and phytosanitary (SPS) measures (for more background on agricultural trade-related terminology, see text box, below); and (4) aggressively counter unfair foreign trade practices.²⁰ P.L. 99-198, as amended, also established goals for future agricultural trade negotiations, including eliminating foreign tariff and NTBs to trade, eliminating foreign trade-distorting export subsidies, and disciplining state-trading entities from dumping agricultural products to foreign markets.²¹ Additionally, the Trade and Development Act of 2000 (P.L. 106-200, 7 U.S.C. §1736r note) sets out agricultural trade negotiating objectives for the United States with respect to the World Trade Organization (WTO).
• Trade Promotion Authority (TPA) legislation expedites the congressional procedures to approve and implement trade agreements negotiated by the President and sets negotiating objectives and trade policy.²² For example, the Omnibus Trade and Competitiveness Act of 1988 (P.L. 100-418, 19 U.S.C. §2901(b)(7) and 7 U.S.C. §5202) set specific U.S. agricultural negotiating objectives and policy during the Uruguay Round multilateral trade negotiations.²³ The most recent TPA authorized, the Bipartisan Congressional Trade Priorities and Accountability Act of 2015 (P.L. 114-26, 19 U.S.C. §4201(b)(3)), set specific trade negotiating objectives, such as securing market access through robust rules on SPS measures and addressing foreign countries' misuse of geographical indication (GI) protections (for more background on GI protections, see text box, below).

FAS addresses foreign trade barriers to U.S. agricultural goods in numerous ways. These can include government-to-government engagements involving staff-level officials discussing issues at a detailed technical level. Unresolved issues that further escalate may involve more senior government officials, such as at the cabinet and ambassador levels. Bilateral engagements addressing trade barriers can be conducted on an ad hoc basis or within established mechanisms and venues, such as through bilateral trade agreements or multilateral forums.²⁴

FAS may work with other U.S. government agencies to address trade barriers, including USTR, the Department of Commerce's International Trade Administration, and regulatory agencies (e.g., USDA's Animal and Plant Health Inspection Service and Food Safety Inspection Service or the Food and Drug Administration). Along with engaging directly with foreign governments on trade issues, FAS and U.S. organizations with agricultural export interests can use FAS-administered export promotion and technical assistance programs to assist in addressing trade barriers (see "Market Development and Trade Promotion Programs" and "Food and Technical Assistance"). If a trade barrier and dispute cannot be resolved with a foreign trading partner by government-to-government engagements and the United States considers the trade barrier to violate trade rules and obligations under a specific trade agreement, the United States could initiate the dispute settlement process under the WTO or a free trade agreement.²⁵

FAS's role in U.S. agricultural trade policy also involves working in a number of multilateral forums, coordinating engagement with U.S. public- and private-sector input on agricultural trade policy through the agricultural trade advisory committee system, administering dairy and sugar import programs, and administering trust funds for domestic apparel and textile manufacturers harmed by import tariffs on cotton and wool fabrics.

Multilateral Engagements

FAS represents U.S. agricultural interests in many multilateral forums. These forums provide venues for the United States to cooperate with other forum members as well as address disputes and differences about international agricultural issues (see the following text box for more information).

Agricultural Trade Advisory Committees

The Trade Act of 1974 (P.L. 93-618, §135; 19 U.S.C. §2155) created an advisory committee system for the public and private sectors to convey its views to the U.S. government and for U.S. trade negotiators to seek information and advice from the public and private sectors related to trade agreement negotiation objectives and trade policy matters.²⁶ The Agricultural Policy Advisory Committee (APAC) for Trade and six commodity-specific Agricultural Technical Advisory Committees (ATACs, see text box, below) provide advice to the USTR²⁷ and the Secretary of Agriculture concerning U.S. agricultural trade policy. The APAC and ATAC membership consists of the U.S. agricultural industry, for-profit and nonprofit organizations, as well as academia.²⁸ Under the current APAC and ATAC charters, the committees meet approximately twice per year at the call of the Secretary of Agriculture and the USTR and dependent on other factors, such as level of activity in trade policy and needs of the agency heads.²⁹ FAS staff serve as designated federal officers that chair or attend, call, adjourn, and approve agendas for advisory committee meetings.

Dairy Import Licensing and Sugar Import Programs

FAS administers import programs for certain dairy and sugar products. These trade-related programs are parts of broader federal government dairy and sugar support programs. For more information about the other support programs, see CRS Report R45730, Farm Commodity Provisions in the 2018 Farm Bill (P.L. 115-334), CRS In Focus IF11163, 2018 Farm Bill Primer: The Farm Safety Net, and CRS In Focus IF12202, Farm Bill Primer: Support for the Dairy Industry.

Dairy Import Licensing

FAS issues one-year licenses to importers of certain foreign dairy products as a means to administer the U.S. dairy tariff rate quota (TRQ) system.³⁰ Chapter 4 of the U.S. Harmonized Tariff Schedule (HTS) indicates which dairy imports require an FAS-issued license to be subject to the low-tier tariff rate, the maximum annual quantity allowed under the low-tier tariff rate, and any country-specific quantity allocations for the low-tier tariff rate.³¹ FAS issues three types of licenses: renewable historical licenses that are carried over annually, nonrenewable nonhistorical licenses issued annually through a lottery system, and designated licenses for cheese importers that meet qualification standards and are designated by the government of the exporting country (7 C.F.R. §§6.23-6.25).³²

Sugar Import Programs

FAS administers sugar import TRQs and a sugar reexport program.³³ USDA determines the annual quantity allowed under the in-quota, low-tier tariff rate for sugar imports every fiscal year while USTR allocates the in-quota quantities to supplying countries based on historical shipments to the United States.³⁴ FAS issues certificates of quota eligibility (CQE) for the sugar TRQ to countries allocated to supply the United States. The CQE must be returned with the sugar shipment for the sugar to be subject to the in-quota tariff rate. Under the commitments of the Uruguay Round, the United States allows for in-quota access not less than 1,117,195 metric tons of raw sugar and not less than 22,000 metric tons of refined sugar.³⁵ The Secretary of Agriculture may modify the TRQs if there is a determination that domestic supplies are inadequate to meet domestic demand at reasonable prices.³⁶ FAS also issues certificates for in-quota imports of specialty sugar under the refined sugar TRQ.³⁷ The purpose of the certificate is to allow import of certain refined sugar not widely available in the United States at the lower in-quota tariff rate.³⁸ CQEs are required for sugar imported under TRQs established by the U.S. free trade agreements with Colombia, Panama, and Peru if USTR determines the trading partner has a trade surplus in these goods.³⁹ FAS also issues specialty sugar certificates for Panama and Peru for the TRQs established under the U.S. free trade agreements with the respective countries.⁴⁰

FAS administers a sugar reexport program not subject to the sugar TRQ limitations by issuing import licenses to eligible refiners, manufacturers, or producers importing raw sugar to be further processed and reexported in refined form; in refined form in sugar-containing products; or used for the production of certain polyhydric alcohol (7 C.F.R. Part 1530).

Cotton and Wool Trust Funds

The Miscellaneous title of the Agricultural Act of 2014 (2014 farm bill; P.L. 113-79) established the Pima Agriculture Cotton Trust Fund and the Agriculture Wool Apparel Manufacturers Trust Fund within USDA.⁴¹ The 2018 farm bill (Agriculture Improvement Act of 2018, P.L. 115-334, 7 U.S.C. §§2101 note and 7101 note) amended the programs. The purpose of the trust funds is to allocate payments to reduce injury to domestic manufacturers resulting from domestic tariffs on imported cotton or wool fabrics that are higher than tariffs on certain apparel articles made of cotton or wool fabrics.⁴² A prior bill that attempted to establish the trust funds argued that U.S. apparel and textile manufacturers faced inverted tariffs because tariffs for imported finished cotton shirts and wool suits are lower than the tariffs for imported fabric inputs, which affects the competitiveness of U.S. manufacturers that use the inputs.⁴³

The 2018 farm bill allocates Commodity Credit Corporation (CCC) mandatory funds of $16 million per year through 2023 to the Pima Agriculture Cotton Trust Fund (7 U.S.C. §2101 note) and an amount equal to the lesser of either an amount determined by the Secretary of Agriculture as necessary or $30 million each year to the Agriculture Wool Apparel Manufacturers Trust Fund (7 U.S.C. §7101 note). FAS is delegated to administer both trust funds in coordination with USDA's Farm Service Agency.⁴⁴ Payments are available to nationally recognized associations that promote pima cotton for the domestic use in textile and apparel goods, yarn spinners of pima cotton that produce ring spun cotton yarns, manufacturers of men's and boys' cotton shirts that imported cotton fabric, and manufacturers that produced or imported certain wool fabrics.

Market Intelligence and Analysis

When USDA was established in 1862, its intended purpose was to acquire and disseminate information about agriculture (12 Stat. 387; 7 U.S.C. §2201).⁴⁵ Among FAS's statutory duties is "acquiring information pertaining to agricultural trade" (7 U.S.C. §5693(1)). FAS produces international market intelligence and analysis that informs U.S. policymakers and stakeholders involved in agricultural trade. The agency publishes and contributes to public-facing reports and maintains databases related to trade statistics, commodities, and foreign markets.⁴⁶ FAS uses a variety of resources to develop agricultural market intelligence and analysis, including satellite imagery, reports from FAS overseas offices, weather data, news reports, and official U.S. and foreign government data, among other sources.

Export Programs

Market Development and Trade Promotion Programs

FAS administers several market development programs that aim to support "U.S. industry efforts to build, maintain, and expand overseas markets for U.S. food and agricultural products."⁴⁷ The 2018 farm bill (P.L. 115-334, 7 U.S.C. §5623) reauthorized export promotion programs with mandatory funding from FY2019 to FY2023 of $255 million annually through USDA's CCC with funds remaining available until expended. These programs, consolidated by the 2018 farm bill and categorized collectively as the Agricultural Trade Promotion and Facilitation Program (ATPFP), are the following:

• Market Access Program (MAP). MAP provides funds to share the cost of marketing and promotion activities to "encourage the development, maintenance, and expansion of commercial export markets" for U.S. agricultural commodities.⁴⁸ Eligible participants include nonprofit U.S. agricultural trade organizations, nonprofit state regional trade groups, U.S. agricultural cooperatives, and state government agencies. Small-sized private U.S. commercial entities may participate in a branded program through a MAP participant. The 2018 farm bill funded MAP not less than $200 million annually from FY2019 to FY2023.
• Foreign Market Development (FMD) Program. Similar to MAP, FMD provides funds to share the cost of overseas marketing and promotion activities. However, only nonprofit U.S. agricultural trade organizations are eligible to participate in FMD, and it is focused on the generic promotion of U.S. commodities rather than branded products.⁴⁹ The 2018 farm bill funded FMD not less than $34.5 million annually from FY2019 to FY2023.
• Emerging Markets Program (EMP). EMP provides funds for technical assistance activities to U.S. private or government entities with a demonstrated role or interest in U.S. agricultural exports. The program was established "to develop agricultural markets in emerging markets" and "promote cooperation and exchange of information between agricultural institutions and agribusinesses in the United States and emerging markets."⁵⁰ The 2018 farm bill funded EMP not more than $8 million annually from FY2019 to FY2023.
• Technical Assistance for Specialty Crops (TASC). TASC funds U.S. organizations with a demonstrated role or interest in exporting U.S. agricultural specialty crops, which include most cultivated plants and the products of cultivated plants except for wheat, feed grains, oilseeds, cotton, rice, peanuts, sugar, and tobacco.⁵¹ Eligible activities for TASC funding involve addressing existing or potential SPS or technical barriers that prohibit or threaten the export of U.S. specialty crops. The 2018 farm bill funded TASC $9 million annually from FY2019 to FY2023.

An additional Priority Trade Fund supplements the other ATPFP programs "for authorized activities to access, develop, maintain, and expand markets" for U.S. agricultural products.⁵² The 2018 farm bill provided $3.5 million annual mandatory funding for the Priority Trade Fund from FY2019 to FY2023. In general, these programs provide reimbursable matching or cost-share funds for U.S. organizations to conduct activities that expand and develop foreign markets for U.S. agricultural products.

The Quality Sample Program (QSP) is another program with the objective to develop and expand U.S. agricultural exports. Unlike the ATPFP programs, which are authorized and funded by the farm bill, QSP is authorized under the CCC Charter Act (P.L. 80-806; 62 Stat. 1070; 15 U.S.C. §714c(f)), as amended, which allows CCC to use its powers to aid in the development of foreign markets for commodities. QSP is designed to assist U.S. entities in providing commodity samples to potential foreign importers to help develop a new market for a U.S. product, promote a new U.S. product, or promote a new use for a U.S. product rather than promote the substitution of an established U.S. product.⁵³

For more background on these programs, see CRS Report R46760, U.S. Agricultural Export Programs: Background and Issues, and CRS In Focus IF12155, Farm Bill Primer: Trade and Export Promotion Programs.

Export Credit Guarantees

The 2018 farm bill reauthorized export credit guarantee programs for exports to emerging markets through FY2023 with funding from CCC of not less than $1 billion each fiscal year (7 U.S.C. §5622 note). Additionally, $5.5 billion is available each fiscal year from CCC (7 U.S.C. §5641(b)) with no funding expiration date. FAS administers two export credit guarantee programs:⁵⁴

• Export Credit Guarantee Program (GSM-102). GSM-102 provides payment guarantees for the commercial export of U.S. agricultural products mainly to developing countries.⁵⁵ In FY2022, $3.4 billion in loan commitments were made under GSM-102.⁵⁶ CCC does not provide financing but assumes the default risk in case the foreign financial institution involved fails to make any payment covered by the guarantee.⁵⁷ If the foreign financial institution fails to make any payment as agreed, the participating exporter of U.S. agricultural products or participating U.S. financial institution that takes assignment of the payment guarantee may submit a claim to CCC for payment.⁵⁸
• Facility Guarantee Program (FGP). FGP provides credit guarantees for financing the establishment or improvement of facilities or provides services or goods in emerging markets primarily to promote the export of U.S. agricultural products.⁵⁹ No loan commitments were made for FGP in FY2022.⁶⁰

For further background on these programs, see CRS Report R46760, U.S. Agricultural Export Programs: Background and Issues, and CRS In Focus IF12155, Farm Bill Primer: Trade and Export Promotion Programs.

Trade Missions and Shows

FAS is involved in international trade missions and trade shows to support U.S. companies and organizations as part of its duties to carry out market promotion and development activities. U.S. companies, state departments of agriculture, and other organizations with U.S. agricultural export interests may participate in FAS-organized overseas trade missions, known as "Agribusiness Trade Missions" (ATMs). These trade missions, led by senior USDA officials, are meant to connect U.S. businesses with potential customers and educate participants about the "economic conditions and regulatory environments in host-country markets."⁶¹ USDA also uses the overseas visit to engage with the foreign host-government on trade policy and cooperative issues.⁶²

FAS endorses international trade shows and works with trade show organizers and other organizations to create a "USA Pavilion" to showcase U.S. products. FAS provides additional services and assistance to participating U.S. companies.⁶³ Cooperators,⁶⁴ state regional trade groups, and state departments of agriculture also participate as exhibitors.⁶⁵

Food and Technical Assistance

The Agricultural Trade Act of 1978 (P.L. 95-501; 7 U.S.C. §5693), as amended, instructs FAS to assist the Secretary of Agriculture to carry out agricultural trade and international cooperation policy by providing agricultural technical assistance and training and carrying out programs authorized under P.L. 95-501, the Food for Peace Act (FFPA; P.L. 83-480, 7 U.S.C. §1691), and other acts.

Food Assistance

Current food assistance programs originated from FFPA, commonly known as "P.L. 480." Section 2 of FFPA (7 U.S.C. §1691), as amended, identifies five objectives in enhancing food security in developing countries:

• combat world hunger and malnutrition and their causes;
• promote broad-based, equitable, and sustainable development, including agricultural development;
• expand international trade;
• foster and encourage the development of private enterprise and democratic participation in developing countries; and
• prevent conflicts.

USDA and the U.S. Agency for International Development (USAID) are the main agencies that administer food assistance programs. FAS administers the following nonemergency food assistance programs that were reauthorized by the 2018 farm bill (P.L. 115-334) through FY2023:

• Food for Progress (7 U.S.C. §1736o). The program's two principal objectives are to improve agricultural productivity and expand trade of agricultural products in developing countries. Donated U.S. agricultural commodities are sold, usually to the local market of target countries, and the proceeds are used to support agricultural development activities.
• McGovern-Dole International Food for Education and Child Nutrition Program (7 U.S.C. §1736o-1). The program's objectives are to "reduce hunger, increase literacy, and improve the health and dietary practices of school-age children, with an emphasis on girls" by funding school meals and education and nutrition programs implemented by private-voluntary organizations and other international organizations in countries with high food insecurity.⁶⁶
• Local and Regional Food Aid Procurement Program (7 U.S.C. §1726c). The program supplements the McGovern-Dole Program by providing locally and regionally procured food.

For more information on U.S. international food assistance programs, see CRS Report R45422, U.S. International Food Assistance: An Overview, CRS In Focus IF12067, Farm Bill Primer: U.S. International Food Assistance Overview, and CRS In Focus IF12081, Farm Bill Primer: International Food Aid Programs, McGovern-Dole and Local and Regional Procurement.

Technical Assistance

The National Agricultural Research, Extension, and Teaching Policy Act of 1977 (P.L. 95-113, 7 U.S.C. §3291) authorizes USDA to carry out research, extension, and teaching activities with foreign institutions, departments and ministries of agriculture, and individuals. FAS administers several fellowship programs related to agricultural technical assistance, including specific programs authorized by farm bills and funded by appropriation acts:

• Cochran Fellowship Program (7 U.S.C. §3293). The Food, Agriculture, Conservation, and Trade Act of 1990 (P.L. 101-624) formally authorized and expanded an existing international agricultural fellowship program.⁶⁷ The program trains individuals from middle-income countries, emerging markets, and emerging democracies for the purposes of developing eligible countries' agricultural systems and strengthening trade linkages with the United States.⁶⁸ Congress authorized without fiscal year limitation such sums as may be necessary to carry out the program except for certain criteria. Funds are not to exceed in any fiscal year $4 million for eligible middle-income countries that no longer qualify for U.S. bilateral foreign aid assistance due to per capita income levels; $3 million for eligible middle-income countries that never qualified for U.S. bilateral foreign aid assistance but with an ongoing mutually beneficial relationship with the United States; and $6 million for eligible countries that are transforming to a more democratic system of government. USDA may also receive outside sources to fund the program. Authorization for the program is permanent.
• Borlaug International Agricultural Science and Technology Fellowship Program (Borlaug Fellowship Program) (7 U.S.C. §3319j). The Food, Conservation, and Energy Act of 2008 (P.L. 110-234) established a fellowship program to provide scientific training and study in the United States for individuals from eligible countries for the purposes of promoting food security and economic growth and supporting scientific exchanges.⁶⁹ Congress authorized appropriations of such sums as necessary to remain available until expended. Authorization for the program is permanent.
• International Agricultural Education Fellowship (7 U.S.C. §3295). The 2018 farm bill (P.L. 115-334) established a fellowship program for U.S. citizens to assist eligible countries for the purposes of developing "globally minded" U.S. agriculturalists, focusing on meeting the food and fiber needs of the eligible countries, and strengthening trade linkages between eligible countries and the U.S. agricultural industry.⁷⁰ Congress authorized appropriations of $5 million each fiscal year from 2019 to 2023 for the program.

In addition to the specific fellowship programs codified in statute, FAS administers other programs providing international fellowships and exchanges as well as projects with other U.S., foreign, and international government agencies, research institutions, and agricultural industry organizations to improve the agricultural systems and trade capacity of developing countries.⁷¹ Table 2 lists selected FAS fellowship and exchange programs.

Additionally, FAS carries out technical assistance and other activities overseas through reimbursable agreements on behalf of USAID, foreign governments, and international organizations that are funded by other agencies.⁷²

Considerations for Congress

Congress has maintained an interest in international agricultural trade and food security. As an agency that carries out the policies and programs for agricultural trade and international cooperation on behalf of the United States, FAS presents numerous issues that Congress could consider. Congress may use a number of tools available, including legislation, appropriations, report language, oversight, and direct communication, to influence, direct, or evaluate FAS and its programs.⁷³

Congress established the overall agricultural trade policy of the United States in response to the international trade environment through various acts, including declarations of agricultural trade policies and objectives.⁷⁴ As foreign trade barriers affecting U.S. agricultural exports arise or require greater attention, Congress may consider directing or influencing USDA and FAS to address or prioritize such issues.⁷⁵

FAS publishes and provides a suite of reports and data related to agricultural trade. Congress may consider if there is specific, additional reporting needed that FAS could produce or discontinue existing reporting requirements.⁷⁶

FAS administers several programs related to U.S. agricultural exports and international food and technical assistance. As Congress considers various issues and its priorities related to foreign agricultural affairs, such as promoting U.S. export competitiveness and foreign market share, improving international trade linkages, and ensuring food security, it may evaluate,⁷⁷ modify,⁷⁸ or provide guidance to existing programs as well as establish new programs to be administered by FAS.⁷⁹ Congress may also consider requesting USDA to use its broad authorities under the CCC Charter Act to establish programs related to international agricultural trade and assistance initiatives.⁸⁰

Farm Bill Considerations

The farm bill traditionally has been the main legislative vehicle to modifying policies and programs for U.S. agriculture, including programs related to international agricultural trade and assistance. With the authorization and mandatory funding expirations of a number of 2018 farm bill programs administered by FAS, Congress may take into consideration how to address this either through enacting temporary extensions or through enacting a new farm bill. FAS programs affected by the 2018 farm bill expiration include the following:

• Export promotion programs under the ATPFP are unable to fund program applicants for FY2024.
• The Pima Agriculture Cotton Trust Fund and the Agriculture Wool Apparel Manufacturers Trust Fund are unable to make payments to applicants after December 31, 2023. Although the 2018 farm bill provided mandatory funding for the trust funds, they are programs without a budget baseline after 2023.⁸¹
• Food for Progress is set to terminate after December 31, 2023.
• Authorizations of appropriations for the McGovern-Dole International Food for Education and Child Nutrition Program, Local and Regional Food Aid Procurement Program, and International Agricultural Education Fellowship expired at the end of FY2023.