.*S^,>«v.»v Montana State Library Records Digitization Project COVER SHEET ■'.■^-y •-*-. ^«t3. This page is not part of the original document and was inserted for formatting purposes s 328.3 LI 3rape 1986 THE ECONOMIC PROBLEMS OF AGRICULTUR^JfcLeK.oou-oH MONTANA WAR 0 1333 MONT«NA ST»TE I.IEHAEW 1515 E. 6U' AVE. HElfNA. MONTANA 5«a0 Joint Interim Subcommittee on Agricultural Problems A Report to the 50th Legislature May 1987 PLEASE RETURr^ i&0h,if^^iAi¥, 9900 Montana Legislative Councils Published by MONTANA LEGISLATIVE COUNCIL Room 138 State Capitol Helena, Montana 59620 (406) 444-3064 M 2 - ^992 "t,^""""'!': problems < ol agriculture in 3 0864 00059353 6 THE ECONOMIC PROBLEMS OF AGRICULTURE IN MONTANA A Report to the 50th Legislature by the Joint Interim Subcommittee on Agricultural Problems May 1987 Published by Montana Legislative Council Room 138 State Capitol Helena, Montana 59620 (406) 444-3064 3-3^9-'Sg' MEMBERSHIP JOINT INTERIM SUBCOMMITTEE ON AGRICULTURAL PROBLEMS Senator Allen Kolstad, Chairman Senator Jack Gait Senator Leo Lane Senator Ted Neuman Representative Gay Holliday, Vice-chairman Representative Tom Asay Representative James Schultz Representative Paul Rapp-Svrcek Published by MONTANA LEGISLATIVE COUNCIL Senator J. D. Lynch, Chairman Robert B. Person, Executive Director COMMITTEE STAFF Researcher Attorney Tom Gomez Dave Cogley TABLE OF CONTENTS Page House Joint Resolution No. 57 i Summary of Recommendations iii Introduction 1 I. The Economic Problems of Agriculture in Montana 3 II. Policy and Program Options: 1. Provide financial counseling, debt mediation, and other assistance to aid financially distressed farmers . . 13 2. Create a state loan linked deposit program to assist farmers in obtaining short-term credit necessary to finance current operations 21 3. Amend state banking regulations to allow prudently managed banks to amortize loan losses on a multiple year basis as a means of enabling banks to preserve their capital and to maintain their capacity to extend credit to agricultural borrowers 27 4. Permit banks to hold foreclosed ^ farmland for a longer period of time in order to preserve real estate values and to allow banks to stabilize their capital 30 5. Revamp the Montana Beginning Farm Loan Program to make it a viable program to assist beginning farmers and ranchers in obtaining loans for the purchase of agricultural land and property .... 33 tv 6. Establish a program to promote the marketing of Montana grain by distinguishing it as a premium commodity and by ensuring the quality and identity of delivered shipments . . 37 7. Authorize creation of a marketing division in the Montana Department of Agriculture to promote Montana agricultural products in both foreign and domestic markets and to assist producers and marketers in dealing with potential buyers, trade representatives, and government agencies 44 8. Restrict the amount of farm losses that may be deducted against nonfarm income for Montana income tax purposes ... 50 9. Refocus agricultural research to better meet the needs of Montana's farmers and ranchers 56 10. Provide for a state hunting/recreational fee access program as a means of: (1) allowing farmers to earn additional farm income by providing them an alternative use for their land; (2) controlling game damage on agricultural lands; and (3) promoting greater satisfaction of landowners for their contribution to wildlife habitat 68 III. Subcommittee Deliberations and Recommendations 71 Reference Notes 107 I ( I Appendices A. Legislation Recommended to the 50th Legislature. LC 11 AN ACT ESTABLISHING A 100% (HB 40) MONTANA LIMITED BLENDED GRAIN MARKETING PROGRAM; AUTHORIZING THE DEPARTMENT OF AGRICULTURE TO ADMINISTER THE PROGRAM; AND GRANTING RULEMAKING AUTHORITY. LC 476 AN ACT AMENDING SECTION 32-1-423, (SB 59) MCA, TO ALLOW STATE-CHARTERED BANKS TO HOLD AGRICULTURAL REAL ESTATE FOR 15 YEARS FOLLOWING ACQUISITION BY FORECLOSURE OR CONVEYANCE IN SATISFACTION OF liAtr: DEBT . LC 477 AN ACT TO REVISE AND CONTINUE (HB 46) THE AGRICULTURAL LOAN LINKED DEPOSIT PROGRAM; AND AMENDING SECTIONS 17-6-103 AND 80-14-102, MCA, AND SECTION 9, CHAPTER 5, SPECIAL LAWS OF MARCH 1986. LC 478 AN ACT APPROPRIATING MONEY TO (HB 275) REPLACE THE POTENTIAL EARNINGS LOST TO INVESTMENT FUNDS USED TO PURCHASE DISCOUNTED CERTIFICATES OF DEPOSIT UNDER THE AGRICULTURAL PRODUCTION LOAN LINKED DEPOSIT PROGRAM. LC 479 AN ACT PROVIDING FOR TEMPORARY (HB 71) CONTINUATION OF THE AGRICULTURAL ASSISTANCE AND COUNSELING PROGRAM; AMENDING SECTION 15, CHAPTER 9, SPECIAL LAWS OF MARCH 1986; AND APPROPRIATING .: FUNDS. B. Legislation Considered, but for Which No Recommendation Was Made to the 50th Legislature. LC 526 AN ACT ESTABLISHING A MONTANA (HB 86) AGRICULTURAL MARKETING PROGRAM; ^ AUTHORIZING THE DEPARTMENT OF "■ AGRICULTURE TO ADMINISTER THE PROGRAM; AND APPROPRIATING FUNDS . C. Legislation Recommended to the 49th Legislature During the Special Session Held in March 1986 (Including Bills as Adopted) . SB 7 AN ACT CREATING AN AGRICULTURAL (LC 31) PRODUCTION LOAN LINKED DEPOSIT PROGRAM; AUTHORIZING THE BOARD OF INVESTMENTS TO PLACE UP TO $50,000,000 OF PUBLIC INVESTMENT FUNDS IN CERTIFICATES OF DEPOSIT WITH PARTICIPATING LENDING INSTITUTIONS AT AN INTEREST RATE 1 PERCENT BELOW THE CURRENT MARKET RATE; AND REQUIRING EACH INSTITUTION TO LEND THE VALUE OF SUCH DEPOSITS TO ELIGIBLE AGRICULTURAL OPERATIONS AT AN INTEREST RATE NOT EXCEEDING 2 PERCENTAGE POINTS GREATER THAN THE RATE PAYABLE ON THE CERTIFICATES OF DEPOSIT. SB 9 AN ACT TO PROVIDE FUNDING TO (LC 42) ENABLE THE DEPARTMENT OF NATURAL RESOURCES AND CONSERVATION TO ISSUE ADDITIONAL GENERAL OBLIGATION WATER DEVELOPMENT BONDS; AND AMENDING SECTIONS 85-1-603, 85-1-604, AND 85-1-617, MCA. HB 10 AN ACT APPROPRIATING MONEY TO (LC 30) REPLACE THE POTENTIAL EARNINGS LOST TO INVESTMENT FUNDS USED TO PURCHASE DISCOUNTED CERTIFICATES OF DEPOSIT UNDER THE AGRICULTURAL PRODUCTION LOAN LINKED DEPOSIT PROGRAM. HB 11 AN ACT ESTABLISHING AN (LC 7) AGRICULTURAL ASSISTANCE AND COUNSELING PROGRAM TO AID FINANCIALLY DISTRESSED FARMERS; PROVIDING FOR FINANCIAL COUNSELING, FARM MANAGEMENT TRAINING, LEGAL SERVICES, VOLUNTARY DEBT MEDIATION, MENTAL HEALTH ASSISTANCE, SUPPORT COUNSELING, AND REFERRAL SERVICES; AUTHORIZING THE DEPARTMENT OF AGRICULTURE TO ADMINISTER THE PROGRAM; AND APPROPRIATING FUNDS. SJR 2 A JOINT RESOLUTION OF THE SENATE (LC 8) AND HOUSE OF REPRESENTATIVES OF THE STATE OF MONTANA URGING THE UNITED STATES SECRETARY OF AGRICULTURE TO MAKE ADVANCE COMMODITY CREDIT CORPORATION (CCC) RECOURSE LOANS AVAILABLE TO MONTANA AGRICULTURAL PRODUCERS, AS AUTHORIZED UNDER PROVISIONS OF THE FOOD SECURITY ACT OF 1985, THEREBY ENSURING THAT ADEQUATE OPERATING CREDIT IS AVAILABLE FOR PLANTING OF THE 1986 CROP. HJR 2 A JOINT RESOLUTION OF THE SENATE (LC 34) AND THE HOUSE OF REPRESENTATIVES OF THE STATE OF MONTANA URGING THAT THE UNITED STATES CONGRESS ENACT TEMPORARY LEGISLATION TO AID AGRICULTURAL BORROWERS AND LENDERS DURING THE CURRENT FINANCIAL CRISIS IN MONTANA AGRICULTURE AND REQUESTING CONGRESS TO EXPAND THE FARMERS HOME ADMINISTRATION LOAN GUARANTEE AND INTEREST RATE BUYDOWN PROGRAMS, TO PRESERVE THE SMALL BUSINESS ADMINISTRATION GUARANTEED LOAN PROGRAM FOR BUSINESSES IN RURAL FARM COMMUNITIES, AND TO CREATE A SECONDARY MARKET FOR FARM REAL ESTATE TO STABILIZE LAND VALUES. HJR 3 A JOINT RESOLUTION OF THE SENATE (LC 9) AND THE HOUSE OF REPRESENTATIVES OF THE STATE OF MONTANA REQUESTING THE UNITED STATES CONGRESS NOT TO IMPOSE AN EXCISE TAX ON IMPORTED CRUDE OIL BECAUSE OF THE SERIOUS FINANCIAL IMPACT SUCH TAX WOULD HAVE UPON AGRICULTURE IN MONTANA. • D. Legislation Tabled or for Which No Action Was Taken. E. Papers Discussing the Effects of Technology on Farmer Income. HOUSK JOINT RESOLUTION NO. 57 A JOINT RESOLUTION OF THE SENATE AND THE HOUSE OF REPRESENTATIVES OF THE STATE OF MONTANA REQUESTING AN INTERIM STUDY OF THE PROBLEMS FACING THE AGRICULTURAL SECTOR OF THE MONTANA ECONOMY. WHEREAS, Montana's fannily farm and ranch operators are being squeezed between low commodity prices and high operating and overhead costs that threaten to erase many such agricultural units from the productive framework; and WHEREAS, the health of main street businesses in most communities of the state reflects the economic condition of agriculture; and WHEREAS, the stability of many Montana financial institutions depends upon the ability of farmers and ranchers to fulfill their obligations promptly and upon maintenance of values of farm and ranch land; and WHEREAS, state and local governments lely upon a continuing How of tax revenue generated by or related to agriculture; and WHEREAS, information on the farm credit system and on agricultural marketing problems including exports, embargo protection, meat imports, foreign aid food programs, subsidized food export programs, and supply management programs is required for the development of effective legislation; and WHEREAS, legislation to provide a long-term solution to the problems of agi'iculture requires bipartisan support for a continuing program to assure equitable commodity prices that will allow farmers and ranchers to realize profits on their products and such legislation must include workable provisions capable of withstanding changes in administrations and capable of adjusting with domestic and international economic fluctuations; and WHEREAS, assessment of the impact of factors such as federal deficits and high interest rates is necessary to an understanding of the plight of agriculture; and WHEREAS, certain members of the 49th Legislature, recognizing the effect of these and other factors upon the viability of Montana's farm and ranch economy, participated in the deliberations of the Cooperative Agricultural Rcwitalization EITort, otherwise known as the CARE Forum, to assess the extent of the state's agricultural problems and to search for remedies to the impending crisis situation; and WHEREAS, the CARE Forum lacked the time and resources to complete its agenda and the Ixjgislature recognizes the need for continuation of an effort such as the CARE Forum. NOW, THEREFORE, BE IT RESOLVED BY THE SENATE AND THE HOUSE OF REPRESENTATIVES OF THE STATE OF MONTANA: That an appropriate interim committee be assigned: (1) to study the problems and prospects facing Montana's farmers and ranchers; and (2) to recommend a course of action or programs to assist and to promote Montana agriculture. BE IT FURTHER RESOLVED, that the committee report the Ondings of the study to the 50th Legislature and, if necessary, draft legislation to implement its recommendations. Passed April 25, 1985 W It SUMMARY OF RECOMMENDATIONS I. The Joint Interim Subcommittee on Agricultural Problems recommends that the 50th Legislature enact into law these bills: LC 11 An act establishing a 100% Montana limited (HB 40) blended grain marketing program; authorizing the Department of Agriculture to administer the program; and granting rulemaking authority. LC 476 An act amending section 32-1-423, MCA, to (SB 59) allow state-chartered banks to hold agricultural real estate for 15 years following acquisition by foreclosure or conveyance in satisfaction of debt. LC 477 An act to revise and continue the agricultural (SB 46) loan linked deposit program; and amending sections 17-6-103 and 80-14-102, MCA, and section 9, Chapter 5, Special Laws of March 1986. LC 478 An act appropriating money to replace the (HB 275) potential earnings lost to investment funds used to purchase discounted certificates of deposit under the agricultural production loan linked deposit program. Ill LC 479 An act providing for temporary continuation of (HB 71) the agricultural assistance and counseling program; amending section 15, Chapter 9, Special Laws of March 1986; and appropriating funds. II. The Subcommittee has considered but makes no recommendation concerning the following legislation: LC 526 An act establishing a Montana agricultural (HB 86) marketing program; authorizing the Department of Agriculture to administer the program; and appropriating funds. III. The Joint Interim Subcommittee on Agricultural Problems recommended that the Montana Legislature, meeting in Special Session in March 1986, enact legislation to assist the state's financially troubled agricultural industry. This legislation, consisting of seven bills, was approved by the Legislature. These bills are listed below as follows: SB 7 An act creating an agricultural production loan linked deposit program; authorizing the Board of Investments to place up to $50,000,000 of public investment funds in certificates of deposit with participating lending institutions at an interest rate 1 percent below the current market rate; and requiring each institution to lend the value iiV of such deposits to eligible agricultural operations at an interest rate not exceeding 2 percentage points greater than the rate payable on the certificates of deposit. (Ch. 5, Special Laws of March 1986) SB 9 An act to provide funding to enable the Department of Natural Resources and Conservation to issue additional general obligation water development bonds; and amending sections 85-1-603, 85-1-604, and 85-1-617, MCA. (Ch. 6, Special Laws of March 1986) ^B 10 An act appropriating money to replace the potential earnings lost to investment funds ; used to purchase discounted certificates of deposit under the agricultural production loan linked deposit program. HBJJ. An act establishing an agricultural assistance and counseling program to aid financially distressed farmers; providing for financial counseling, farm management training, legal services, voluntary debt mediation, mental health assistance, support counseling, and referral services; authorizing the Department of Agriculture to administer the program; and appropriating funds. (Ch. 9, Special Laws of March 1986) SJR_2 A joint resolution of the Senate and the House of Representatives of the State of Montana urging the United States Secretary of Agriculture to make advance Commodity Credit *• Corporation (CCC) recourse loans available to Montana agricultural producers, as authorized under provisions of the Food Security Act of 1985, thereby ensuring that adequate operating credit is available for planting of the 1986 crop. HJR 2 A joint resolution of the Senate and the House of Representatives of the State of Montana urging that the United States Congress enact temporary legislation to aid agricultural borrowers and lenders during the current financial crisis in Montana agriculture and requesting Congress to expand the Farmers Home Administration loan guarantee and interest rate buydown programs, to preserve the Small Business Administration guaranteed loan program for businesses in rural farm communities, and to create a secondary market for farm real estate to stabilize land values. HJR 3 A joint resolution of the Senate and the House of Representatives of the State of Montana requesting the United States Congress not to impose an excise tax on imported crude oil because of the serious financial impact such tax would have upon agriculture in Montana. vi INTRODUCTION This is the final report of the Joint Interim Subcommittee on Agricultural Problems, which was formed to study the economic problems of agriculture in Montana, as requested by House Joint Resolution No. 57 (HJR 57). HJR 57 Specifically directed the Subcommittee to: (1) study the problems and prospects facing Montana's farmers and ranchers; and (2) recommend a course of action or programs to assist and promote Montana agriculture. This report describes the results of the study undertaken by the Subcommittee. Part I provides an assessment of the state's current agricultural problems. Part II outlines the policy and program options which the Subcommittee examined as a means of addressing the problems of Montana agriculture. Part III reports the Subcommittee's deliberations and final recommendations to the Legislature. I. THE ECONOMIC PROBLEMS OP AGRICULTURE IN MONTANA AN OVERVIEW The conditions of the Montana farm economy have seriously deteriorated over the last five years. This problem is evident in the increasing number of farm failures, foreclosures, forced liquidations, and loan delinquencies experienced by Montana farmers. The current problem is rooted in the economic events of the 1970's.-^ During the 1970's, farmers in Montana and the United States enjoyed rapidly expanding export markets, high farm prices, low-to-negative interest rates, and rising farmland values. Encouraged by the U.S. Department of Agriculture and local financial lenders, many farmers responded to this situation by expanding their operations and, in doing so, incurred substantial debt to finance the purchase of new equipment and real estate. The expansion proceeded throughout the 1970 's. Then, beginning in 1980 and 1981, the forces driving the expansion reversed direction. The factors underlying this reversal included a worldwide recession, an overvalued U.S. dollar, an expansionary federal fiscal policy, and a restrictive U.S. monetary policy. These factors combined to dampen foreign demand for American agricultural products. As U.S. farm production continued apace, partly shielded from market realities by domestic government programs which encouraged expansion, surpluses accumulated and commodity prices fell sharply. The abrupt turnaround found many farmers heavily leveraged, which made it difficult for them to adjust to the changed economic situation. Those farmers whose solvency depended on the continual appreciation of their land or who pursued an aggressive expansion strategy were pushed toward insolvency. DIMENSIONS OF THE PROBLEM The precise extent and severity of the current problems in Montana agriculture are not fully known due to the lack of data. However, a reasonably clear outline of the problem can be obtained from available statistics. Some of these statistics are presented below as follows: Farm Marketing Cash receipts from the sale of principal crops in Montana have dropped precipitously since 1982. Between 1982 and 1985, cash receipts decreased 54.8%, followed by a modest improvement in 1986 that left receipts 53% below 1982 levels. ^ Export Sales The value of Montana agricultural exports dropped 55% in 1985 compared to the previous year. This decrease translates into a $290.3 million loss in export sales during one year alone. ^ Exports of wheat and wheat products, which account for 83% of all Montana agricultural exports, dropped $318.1 million between 1982 and 1985, following a national trend in the decline of wheat exports. Farm Prices - ' ' ' Prices received for Montana cash crops have fallen drastically in recent years. Wheat prices declined 42.4% from $4.22/bushel in 1980 to $2.43/bushel in 1986.^ Barley prices also slumped, dropping 47.3% between 1980 and 1986. These prices fell from $2.75/bushel in 1980 to $1.45/bushel in 1986.^ Beef cattle prices showed a substantial decline over the past six years. In 1980, beef cattle prices averaged $58.08/cwt. In 1986, these prices were down 15.1%, falling to a season average price of $49.30/cwt.' Farm Production Costs In 1985, 131.9% of Montana's total cash receipts from farm marketings went toward payment of farm production expenses. ° During the same year, Montana farm production expenses exceeded total gross farm income by $13.3 million.^ Net Farm Income . ' ^ Montana net farm income plunged 411% between 1981 and 1985, resulting in a negative net farm income of -$351.7 million in 1985, as shown in Table 1. Table 1 Net Income From Farming: Montana 1981-1985 1981 1982 1983 1984 1985 (Million Dollars) $113.2 82.2 15.7 -106.7 -351.7 Source: Montana Agricultural Statistics Service, Montana Agricultural Statistics, Vol. XXIII (October 1986) . Farmland Values The average value per acre of farmland, including farm buildings, has decreased 38.4% between 1982 and 1987. This decrease follows an increase of 72.6% in farm real estate values that occurred between 1977 and 1982. This information is reported in Table 2, as follows: K«^' k Table 2 Average Value per Acre of Farm Real Estate in Montana, 1977-1987. Year 1977 1978 1979 1980 1981 1982 1983 1984 1985 1986 1987 Source: U.S. Department of Agriculture, Agricultural Resources, Outlook and Situation Report (Washington, D.C.: April 1987); Montana Agricultural Statistics Service, Montana Agricultural Statistics; 1983-1984, Vol. XXII (September 1985). Farm Debt-to-Asset Ratio Twenty-nine percent of Montana farmers in a financial survey had debt-to-asset ratios over 40%, generally indicating serious financial stress. Nearly 8% in the same survey reported a debt-to-asset ratio of over 70%, which indicates extreme financial stress. Results of the survey are summarized in Table 3. Dollars $ 157 176 196 235 251 271 259 264 222 204 167 Table 3 Montana Farms by Debt/Asset Ratio: 1985 Debt/asset ratio category Percent of farms Debt/asset ratio average 20.0 % 0 % 17.1 % 4.5 % 11.8 % 15.4 % 9.4 % 25.2 % 12.3 % 35.1 % 11.2 % 44.2 % 6.1 % 55.7 % 4.4 % 64.6 % 7.7 % 89.4 % 0 % 0 - 10 % 10 - 20 % 20 - 30 % 30 - 40 % 40 - 50 % 50 - 60 % 60 - 70 % 70 %+ STATE TOTAL 100 % 27 . 8 % Source: Montana Department of Agriculture, Montana Crop and Livestock Reporting Service, Montana 1985 Farm Finance Report (February 1986). Farmer Net Worth Total net worth of Montana farmers declined 35.5% between 1983 and 1985, resulting in a statewide reduction of $5.8 billion. In 1985, average total farm assets in Montana were $623,844, down 28.6% from 1983. Debt per operation also 8 declined, averaging $173,563 in 1985, 6.9% less than in 1983. Based on crop and livestock inventories, it appears that assets were sold to pay off debt.-^^ Table 4 Montana Farmer Net Worth Year Number Average Average Average of farm total net farms assets debt worth Total net worth 1983 24,000 $873,125 $186,458 $686,667 $16,480,008,000 1984 23,900 757,322 180,000 577,322 13,797,995,800 1985 23,600 623,844 173,563 450,281 10,626,631,600 Source: Montana 1985 Farm Finance Report. Farmer Loan Delinquencies Survey data indicate a significant delinquency rate among Montana agricultural borrowers. In 1985, one-fourth of all operating loans and one-third of all real estate loans were delinquent. Generally, both real estate and operating loan delinquencies were much higher for operations smaller than 3,000 acres. » Table 5 Loan Delinquency Rate by Size of Farm, 1985 Size Real estate Non-real of loans estate farm delinquent loans delinquent Acres Percent 499 or less 21.5 36.7 500 - 999 39.3 34.5 1,000 - 1,999 25.3 41.9 2,000 - 2,999 29.5 39.0 3,000 - 4,999 18.9 19.6 5,000-9,999 19.5 19.0 10,000 + 18.5 28.2 Total 24.1 32.7 Source: Montana 1985 Farm Finance Report. FmHA Loan Delinquencies In 1986, the Farmers Home Administration (FmHA) reported that a full one-fourth of Montana borrowers were delinquent in repaying their loans. Loan delinquencies were highest among FmHA emergency loan borrowers — almost half were reportedly delinquent. 10 Table 6 FmHA Loan Delinquencies in Montana by Number of Years in Which Loan Has Been Delinquent, December 31, 1985 Active Borrowers Loan status Number Percent Delinquent less than 3 years 519 15.6% Delinquent 3 years 122 3.7% Delinquent 4 years 127 3.8% Delinquent 5 years 48 1.4% Delinquent more than 5 years 39 1.2% TOTAL 855 25.7% Source: Farmers Home Administration, Bozeman, Montana. Table 7 FmHA Loan Delinquency Rate in Montana by Type of Loan, December 31, 1985 Type of loan Percent of borrowers delinquent Farm ownership loans 23% Operating loans 27% Emergency loans v 49% All loans 26% Source: Farmers Home Administration, Bozeman, Montana 11 Farmers' Expectation About Their Ability to Remain in Farming According to a state survey, over half of all Montana farmers in 1985 believed they would be out of business in five years. •'■-^ In southwestern Montana, where economic conditions were especially poor during 1985, 82% of all producers said they would not survive the next five years. ^ Financial Condition of Montana Banks The financial problems of Montana farmers have been transmitted to Montana banks. According to state banking regulators, 59 banks in Montana were on the troubled bank list as of yearend 1986. Of these banks, 39 were state-chartered banks and 20 were federally chartered. These troubled banks comprised 34.5% of the 171 financial institutions doing business in Montana.^ An examination of Montana bank financial statements shows that about one-third of all banks lost money in 1986,^ some to the extent that they are reaching the level of capital impairment .-'■^ Overall, those banks with serious financial problems were engaged in substantial agricultural loan activity. ■'■■ it II. POLICY AND PROGRAM OPTIONS The Joint Interim Subconunittee on Agricultural Problems studied 10 proposed options for addressing the problems of agriculture in Montana. These options are discussed below, as follows: Option #1 Provide financial counseling, debt mediation, and other assistance to aid financially distressed farmers. Explanation This option involves establishment of a program to provide direct assistance to farmers and ranchers experiencing financial difficulties. The purpose of the program would be to help the state's producers manage farm credit problems, avoid farm foreclosures, and cope with the stress resulting from farm financial problems. Under the program, the state would provide to financially distressed farmers the following types of assistance: financial counseling, farm management training, legal information services, voluntary debt mediation, mental health assistance, support counseling, and referral services. For the purpose of providing such assistance, the state would contract for services with qualified persons, including peer counselors, farm management specialists, mental health professionals, financial analysts, and trained mediators. In addition. 13 the state would establish a toll-free telephone line to receive requests for assistance, counseling, and other services. This option would be intended as an emergency measure, and services would be provided only on a temporary basis while Montana completes the transition to a more stable farm economy. < Discussion This option would address the needs of many farmers and ranchers who are experiencing serious financial problems. According to the Montana Department of Agriculture, 11% of Montana's farmers and ranchers are in need of some type of financial and emotional counseling, and an additional 33% require assistance in obtaining the restructuring of farm debts. ■*• These persons could potentially be helped through a program of counseling, debt mediation, and related services. A key component of this option is debt mediation. Debt mediation is a process by which a farmer who is in danger of foreclosure can attempt to work out credit problems with his lenders by obtaining the assistance of an impartial mediator. The mediator would act as a facilitator to a mediation agreement that might result in an extension in the terms of credit, a reduction in the farmer's payment to the lender, or some other settlement that would allow the farmer to continue in agricultural production or to keep his farm residence. A number of states have initiated debt mediation programs to assist farmers. However, differences exist in how these states provide mediation services. Two 14 states, Minnesota and Iowa, require mandatory mediation, which is fundamentally different from the programs in a majority of states. Under mandatory mediation, no creditor may initiate a proceeding to enforce a debt on agricultural property until the farmer has been given an opportunity to mediate. During the mediation period, the farmer and his creditor are required to mediate in good faith, and the creditor's remedies for enforcement of the debt are suspended, resulting in a moratorium forestalling legal action against the farmer. In Minnesota, mandatory mediation is being challenged in court. The Farm Credit Services of St. Paul filed a lawsuit challenging the constitutionality of Minnesota's new mandatory mediation law. The organization argues that mandatory mediation will unjustly cost its members $50 million in the first year due to delays caused by mediation. -^ Similar Policies and Programs The following is a description of programs developed in several states to provide financial counseling and other assistance to aid financially troubled farmers and ranchers: .4 Iowa Iowa has established a program through the Iowa Cooperative Extension Service to offer financial management and counseling services to individual farm operators. Approximately 45% of the Cooperative Extension Service's program and resources are directed to aid financially troubled farmers. 15 As part of its program, the Iowa Cooperative Extension Service has developed a computer software package called ASSIST, which is used to help Iowa farmers analyze options for servicing debt, establishing cash flow, and working with financial lenders. In addition, the Cooperative Extension Service is involved in training people to work with financially distressed farmers. A recently enacted state law requires the Cooperative Extension Service to accelerate the development of computer software and field staff training to increase the ability of the Extension Service to provide financial management counseling services.^ Kansas The Kansas FACTS (Farmers Assistance, Counseling, and Training Service) Program is available to directly assist farmers, ranchers, and agribusinessmen in avoiding the problems and distress resulting from poor economic conditions in agriculture. Established by the 1985 Kansas State Legislature, the FACTS Program operates with a budget of $300,000 and provides to eligible persons assistance including farm management, financial planning, business planning, and other support counseling. The program also provides referrals for services." The FACTS Program is a jointly sponsored program of the Kansas Cooperative Extension Service and the Kansas State Board of Agriculture. For purposes of providing assistance to financially distressed persons, Kansas 16 utilizes the services and personnel of available state agencies, county extension offices, municipal and community service organizations, and private business and professional agencies. It is said that some elements of the program are similar to the Small Business Administration SCORE Program in that an effort is made to utilize, as financial counselors and personnel, retired professional persons who have backgrounds in agriculture, farm finance, or accounting. Minnesota Minnesota has instituted a farm management and financial counseling program through its Cooperative Extension Service. The program is part of the Minnesota Family Farm Advocate Program. This program is designed to assist family farmers who need help in analyzing their financial situation and in revising their farm financial plans. To help farmers make proper management decisions, Minnesota has developed a computerized financial management program called FINPACK. FINPACK allows farmers to examine long-range planning decisions, monthly cash flow projections, crop and livestock alternatives, end-of-year analyses, and trend projections for their specific farm operation. Furthermore, Minnesota has established a Farm Financial Management Center to provide special training and educational programs in farm financial management. 17 Missouri The state provides financial management counseling through a program known as MOFARMS, the Missouri Financial Advisory Resource Management Support Program. The MOFARMS Program is a joint effort between the Missouri Department of Agriculture and the University of Missouri-Columbia Cooperative Extension Service. Through MOFARMS, farmers can work with professional staff and trained financial consultants to review their financial position, develop an individualized financial plan, and evaluate alternatives to farming. Requests for consultant assistance may be made by calling a toll-free hotline number. The program operates on a budget of approximately $250,000 and recently has been expanded to provide farmers access to information not limited to financial matters. North Dakota In 1985, the North Dakota Legislature enacted a bill to provide for a farm credit counseling program. The purpose of the program is to disseminate information and provide advice and counseling to farmers regarding farm credit problems.^ Under the program, the Commissioner of Agriculture is required to appoint a program coordinator who may hire necessary personnel and independent contractors to act as farm credit counselors. Currently, the program operates with approximately 50 counselors statewide. The counselors provide expertise in farm management, financial analysis. 18 bookkeeping, lending practices, and other areas. Counselors also refer clients who need legal or mental health services to appropriate agencies. The counselors may help to negotiate with lenders. Ninety percent of the counselors employed in the program have college degrees and are farmers. Some have agricultural lending experience. The state conducts three or four training sessions a year for counselors on topics such as tax policies, negotiation techniques, and mental health. The farm credit counseling program is funded by an appropriation of $460,000 in general fund money. The cost of the program as of October 21, 1985, was $251 per farmer aided. Spending for the entire program has averaged $10,420.73 a month. In 1985, the North Dakota Legislature also established the Credit Review Board, which provides mediation between a lender and a farmer who is in danger of immediate foreclosure or who is in the period of redemption. If mediation fails, the board may approve the purchase, refinancing, or redemption of the farmer's home-quarter.^ South Dakota South Dakota has a variety of services to offer financially troubled farmers under its Rural Renaissance Program. The program is focused toward assisting two groups: (1) individuals and families who are being forced out of agriculture because of economic conditions; and (2) farmers and ranchers who can stay in business with supplemental off-farm income. 19 Under the Rural Renaissance Program, the Department of Agriculture provides financial counseling to those farmers and ranchers who are experiencing difficulty handling their financial situation. Assistance is provided through trained counselors, many of whom have an agricultural lending and farm management background. Counselors are trained in the programs and policies of the FmHA, Federal Land Bank, and PCA. Financial management and general farm management assistance is made available through the Cooperative Extension Service. Assistance is provided for farmers and ranchers who decide to stay on the farm and for those who have decided to leave the farm. For those who decide to leave the farm, the Cooperative Extension Service provides counseling on methods of liquidation to decrease the economic loss. In addition, the Cooperative Extension Service will provide counseling on career opportunities and make referrals to those agencies that can give assistance in areas of need. For those farmers and ranchers who decide to stay on the farm, the Cooperative Extension Service offers financial management workshops that can help producers assess their financial position and explore the feasibility of long-range plans and alternatives to obtain a better cash flow situation. Farmers and ranchers going through a restructuring phase can receive assistance on developing a farm plan for the court system. Finally, local school districts, in cooperation with the South Dakota Office of Vocational Education and the South Dakota Department of Agriculture, offer adult 20 "^ 1 farm and ranch business management programs to aid struggling farmers. Farm record analysis is a vital part of the program. Program participants are asked to maintain up-to-date records of all business transactions and family expenditures so that, at the close of the business year, the records can be analyzed to determine the strengths and weaknesses of the individual farm operation. Individual on-the-farm instruction is included in the program. Option #2 Create a state loan linked deposit program to assist farmers in obtaining short-term credit necessary to finance current operations. Explanation This option would establish a state emergency farm finance program to make credit available to agricultural borrowers who are unable to obtain conventional farm loans. The proposed program would provide $50 million in state investment money to financial lenders at 1% below current market rates for such investments. In return, lenders would utilize the additional capital to make agricultural loans to borrowers at favorable interest rates not more than 2-3 percentage points above the cost of obtaining state investment dollars. Under the program, certain restrictions would apply to issuance of linked deposit loans, including these requirements: (1) an applicant for a loan must have a debt-to-asset ratio in excess of 30%; (2) an eligible 21 borrower may qualify for no more than $50,000 in total state financing; and (3) linked deposit loans must be used exclusively to finance necessary production expenses or for the short-term acquisition of livestock for other than breeding purposes. The total cost of the proposed program would be limited to the amount of interest actually lost by investing state money at below market rates. Discussion This option could: (1) improve access to loans by farmers who are having difficulties in obtaining credit; (2) reduce the cost of capital, thus making loans to farmers more affordable; and (3) enable a greater number of farmers to generate a positive cash flow. Several factors indicate both the need and the possibility for success of this option in attaining these results. First, during 1985, 15.6% of all Montana producers had loan applications refused by financial lenders, and 53.4% of those refused a loan could not secure financing from any other lender.^ Second, interest rates for agricultural loans averaged 12.9% in Montana during 1985, with interest rates reported as high as 13.5% and 14% in many instances. •'■^ Third, according to the Montana Cooperative Extension Service, each drop of 1% in the current interest rate for agricultural loans would allow approximately 400 more farmers to obtain a positive cash flow for their operation. -'■■^ At least by one expert analysis, state linked deposit programs are popular with state governments because they are a quick, inexpensive way to assist both 22 distressed farmers and agricultural banks. Such programs are very quick to get up and running. And, administration of such programs is relatively inexpensive and uncomplicated.-^^ However, according to the same analysis, the advantages of a linked deposit program need to be weighed against certain hidden costs and possible pitfalls. State linked deposit programs do have a cost that must be recognized — namely, the revenue foregone by investing state money in lower yielding certificates of deposit. In Ohio's $100 million program, the cost of foregone revenue is $3,500 per loan, totaling $5.52 million for 1,575 loans at an investment rate 3.75% below market rates. ^ State policymakers are cautioned against ill-designed programs that do not sufficiently target program benefits and that do not succeed in eliciting the participation of financial institutions. The main problem is that, under a linked deposit program, participating financial institutions make the loan decisions and retain the risk of bankruptcy or default on these loans. In some instances, the risk of loss outweighs the benefit of low-cost funds obtained under the program. In other instances, the state is able to generate program participation from financial lenders, but little is done to increase the incentive of banks to make marginal loans. Thus, farmers receiving loans under the program are those who are financially strong and not in need of state assistance in obtaining financing for their operations. Based upon its analysis of these problems, the Council of State Policy and Planning Agencies recommends 23 the following minimal criteria for the design of a state loan linked deposit program: -^^ (1) The state program should supplement and not supplant other farm lenders. Even the largest program would be small compared to the total financing demands of agriculture. (2) The program should be limited to refinancing and for operating loans. These are considered the highest priority for farmers who are struggling to remain in operation. (3) Loan eligibility should be restricted to farmers who are experiencing financial difficulty and who cannot find financing from other sources. Those farmers not in financial distress and those who cannot succeed in farming even with assistance should be excluded. s (4) The benefit to banks needs to be carefully considered. The lower cost of state funds must be compared to the required discount banks must make on program loans. The spread between the cost of state funds and the program loan rate must provide a financial incentive sufficient to gain lender participation in the program. Similar Policies and Programs As of October 1985, six states had established a linked deposit program to assist agricultural borrowers. These programs are described as follows: ■'■^ 4M Illinois Illinois founded a linked deposit program in 1980, which has been recently expanded. Under the current program, loans may not exceed $50,000 per borrower and may be used only for operating costs (i.e., the purchase of seed, feed, fertilizer, chemicals, crop insurance, livestock, and production-related expenses). There is no debt-to-asset limit. Participating banks establish most eligibility requirements. Banks may charge borrowers up to 2.5% more than the interest paid on the state certificates of deposit. In 1985, Illinois provided 9,960 loans under the program. These loans totaled $176 million. Indiana Indiana initiated its linked deposit program in April 1985. Under the program, $50 million has been authorized for the purchase of certificates of deposit with participating banks who must make loans at 8% interest. State deposits are made at 52%. Program loans are available for the purpose of providing operating capital. Debt refinancing and cash rent are not qualified uses for linked deposit loans. The maximum loan amount is capped at $50,000. Eligible borrowers must have a net worth of less than $250,000, derive 75% or more of their gross income from farming, have a debt/worth ratio of 1.25, and must submit a financial statement. Under the program, 940 loans totaling $33.5 million were made available. 25 Kansas Kansas established a linked deposit program in 1985. The program makes available $15 million that may be deposited in banks at a fixed rate of 7.88%. Loans to farmers may not exceed 2.5% above the cost of the state's deposit. Loans are capped at $50,000 and may be used to provide operating funds, refinancing of existing debts, and new purchases. To qualify for a loan, farmers must receive at least 70% of their annual gross income from farming and have annual interest costs that exceed 25% of total annual expenses. There is no debt-to-asset requirement. The program has provided 365 loans, totaling $15 million. The program was scheduled to terminate after one year. Michigan Michigan recently established a loan linked deposit program that is administered by the Departments of Commerce and Treasury. The program is authorized $139 million from the common cash fund for use in purchasing certificates of deposit from banks at 2% below the 90-day U.S. Treasury bill rate. Banks may charge interest rates to farmers not exceeding 5% above the rate paid on the state's deposit. Loans may be used for debt refinancing, operating expenses, or equipment purchases. Loans are capped at $100,000. No debt-to-asset ratio eligibility requirement exists under the program. Michigan has committed $131.8 million under the program. tn-^-^-'v* * 26 Missouri Under the Target State Deposit Program, Missouri has made available $50 million in linked deposit loans. The program is aimed at providing production loans. There are no income/asset limits or debt/asset requirements for eligibility under the program. Through the program, $45.7 million has been issued in loans to eligible farmers. Missouri initiated its program in May 1985. Ohio In April 1985, Ohio established a program that makes available $100 million from the Treasurer's Investment Portfolio for the purchase of certificates of deposit at below market rates from banks willing to provide loans at 3-4% under the prevailing loan rate. Loans are capped at $100,000 per applicant, and no debt-to-asset requirements apply for purposes of eligibility. Loans are not restricted to specified uses, but are primarily intended for production or operating loans. Under the program, 1,575 loans totaling $100 million have been granted. The program was authorized to run through May 1987. Option #3 Amend state banking regulations to allow prudently managed banks to amortize loan • t losses on a multiple year basis as a means of enabling banks to preserve their capital and to maintain their capacity to extend credit to agricultural borrowers. 27 Explanation This option would give state-chartered banks a longer period of time in which to charge off agricultural loan losses. Under current state law, a bank carrying a bad agricultural loan must collect on the loan, put it in good bankable condition, or charge the loan out of its books. If the loan is classified as a loss or recognized as a loss, then such loss must be immediately charged off against the bank's available capital. -"-^ These chargeoffs for loan losses can potentially erode the capital structure of a bank. As the bank's capital is reduced, both the total capacity of the bank to extend credit and the size of individual loans that the bank can make are correspondingly reduced. If the bank's capital falls below a minimum required under banking regulations, the capital of the bank may be impaired and the bank could be subject to disciplinary action that may lead to closure of the bank.-'-^ Thus, the primary objective of this option is to prevent the deterioration of bank capital during the current period of heavy agricultural losses in banking. In addition, this option is intended to provide the regulatory flexibility needed to encourage banks to accent the greater risks associated with agricultural loans and to work out debt restructuring plans with problem borrowers. 28 Discussion The proposed option could stabilize bank finances by allowing banks to preserve their capital. Moreover, by helping the banks preserve their capital, this option could enable banks to continue making agricultural loans. However, it is not clear to what extent this proposed option might result in increased agricultural credit or financial relief for farmers. t \ A major limitation of this option is that it does not address the problem of bad farm debt. Permitting banks to have a longer chargeoff period for loan losses only postpones recognition of these losses. The losses would not appear in the bank's profit and loss statement or balance sheet, but they would still exist. Finally, because the loan losses are not fully recognized, banks will tend to report an inflated capital level. This could result in problems with some federal banking regulators. Indeed, there is an indication that while the Federal Reserve System and the Office of Controller of the Currency might accept this practice in some instances, the Federal Deposit Insurance Corporation might not.-^° However, it seems that a problem with federal regulators will arise only if a bank has incurred significant loan losses and has capital approaching the level of impairment. Hence, this option should be made applicable only to banks in which overall financial conditions are sound and which are well-managed and showing no material or significant financial weakness. 29 Similar Policies and Programs In 1986, the South Dakota Legislature enacted a bill to permit the amortization of bank loan losses over a period of 15 years. Under the new law, a loan loss may be charged off over the 15-year period if the loan was classified in an amount not less than $50,000 and if it was advanced as a business, commercial, or agricultural loan.-'-^ All other bank loans ineligible for amortization under the new law must be charged to the bank's capital reserve. The South Dakota law took effect July 1, 1986. Option #4 Permit banks to hold foreclosed farmland for a longer period of time in order to preserve real estate values and to allow banks to stabilize their capital. Explanation This option would modify current restrictions on * real estate that banks may hold. The present state law prohibits a bank from holding foreclosed real estate for a period longer than five years from the date of acquisition. The law reads in part as follows: 32-1-423. Real estate which banks may purchase, hold, or convey. (1) A bank organized under the provisions of this chapter may purchase, hold, or convey real estate which: ( a ) . . . ; (b) . . .; 30 (c) is conveyed to it in satisfaction of debts previously contracted in the course of its business; (d) it purchases at sales under judgments, decrees, or mortgages held by the bank. (2) Real estate acquired in the manner set forth in subsections (l)(c) and (l)(d) of this section may not be held longer than 5 years from the date of acquisition, unless special written permission to do so is granted by the department. The real estate shall be carried on the books of the bank for an amount not greater than its cost to the bank, including costs of foreclosure and other expenses of acquiring title. The purpose of the law presumably is to prevent bank speculation in real estate. Hence, the law permits banks to engage in only those real estate transactions that are considered necessary for the bank to carry on its business and to protect itself against loss on loans that have been issued. The proposed option would alter current state banking laws to allow banks to retain foreclosed real estate for more than five years. The rationale for this option is twofold. First, it would help maintain real estate values by keeping foreclosed farmland off the depressed real estate market. Second, this option would enable banks to improve the stabilization of their capital because banks would not be forced to sell foreclosed real estate at reduced market values, which would result in a financial loss to the banks. Discussion There is a serious need addressed by this option. That need is to prevent a further decline in farmland values. Farmland values in Montana have fallen 31 precipitously in recent years. According to the U.S. Department of Agriculture, the average value of farm real estate per acre in Montana dropped 38% between 1982 and 1987. This decrease followed a 73% increase in farm real estate value that occurred from 1977 to 1982. ^^ Maintenance of values for farm and ranch land is important because the value of real estate is used as collateral for agricultural loans. Allowing banks to hold foreclosed real estate for a longer period could help stabilize farm real estate values and could be of benefit to agriculture in Montana. Furthermore, this option might improve the capital of banks, although real estate is not a favored capital asset in banking. Nevertheless, this option could defeat the original purpose of the law, which was to prevent speculation in real estate by banks. To avoid this problem, consideration might be given to a moderate extension of the period in which banks may retain foreclosed real estate. Similar Policies and Programs The Colorado Legislature recently changed its banking laws to extend the length of time in which a bank may hold foreclosed real estate. Previously, Colorado required banks to sell real estate within five years following its acquisition to satisfy indebtedness. Amendments to the law enacted in 1986 allow state banks to retain foreclosed land for 15 years or such longer period as the state banking commissioner may allow. ^ The State of Iowa also has enacted legislation to permit banks to hold foreclosed land for a longer period 32 of time. Details of this legislation were not available. However, the legislation was reportedly enacted to protect farmland values during a time of numerous farm foreclosures in Iowa. Option #5 , Revamp the Montana Beginning Farm Loan Program to make it a viable program to assist beginning farmers and ranchers in obtaining loans for the purchase of agricultural land and property. Explanation This option seeks a redesign of the Beginning Farm Loan Program so that it will serve the needs of individuals seeking to enter agriculture in Montana. This redesign is considered necessary because of serious questions about the continued viability of the program as it is presently structured. The Beginning Farm Loan Program is a tax-exempt bond program designed to provide low-interest loans to beginning Montana farmers and ranchers for the purchase of land, agricultural improvements, and depreciable property used in the operation of a farm or ranch. ^^ Under the program, applications for agricultural loans must be approved by the Montana Agricultural Loan Authority and a participating financial lender. If a loan application is approved, the Montana Agricultural Loan Authority may issue bonds to fund the loan. The lender purchases the bonds, and the Montana Agricultural Loan Authority uses the bond proceeds to purchase the bank's note that is then assigned as collateral for 33 repayment of the bonds. The tax-exempt status of the bonds enable the lender to offer a lower interest rate to the agricultural borrower. Since its inception in 1983, the Beginning Farm Loan Program has been plagued with problems that continue to hamper its operation. The main problem is that the program is dependent upon the use of federal tax-exempt industrial revenue development bonds. During the first year of the program, federal legislation placed restrictions on the use of the tax-exempt bonds. Because of this, bond counsel would not offer a clean opinion on the state's issuance of bonds, and the program was delayed until certain program changes could be made to comply with the federal requirements. During 1984-1985, two loans were approved and bonds were issued totaling $193,000. Following issuance of these bonds, new problems were created with partial passage of federal legislation to eliminate the tax-exempt status of bonds used for the program. This legislation cast uncertainty over the Beginning Farm Loan Program. ^^ As a consequence of these problems, the Beginning Farm Loan Program has been unable to generate revenue, and the program has sustained large operating losses. According to a recent legislative audit, the program has incurred a net loss of $31,203 for the fiscal period ending June 30, 1986.^° In addition, the audit revealed that total program liabilities exceed total assets by $128,618.^' Furthermore, because of the problems associated with the program, the Beginning Farm Loan Program has borrowed $197,294 from the state general fund. However, no repayment has been made for these 34 borrowed funds. ° Therefore, there is serious doubt that the Beginning Farm Loan Program can continue in existence. Discussion ,.. The Beginning Farm Loan Program is unlikely to succeed as it is presently funded. It is believed that between $3 and $4 million in loans must be granted each year if the program is to be self-supporting, but present factors will inhibit development of the 29 program.''^ Federal legislation was finally enacted, as part of the Tax Reform Act of 1986, which will eliminate the tax exemption for beginning farm loans after December 31, on 1989.-^" This legislation and the current adverse conditions of agriculture may render the existing Beginning Farm Loan Program virtually unusable. However, according to the Montana Department of Agriculture, there may be a continued, real need for the Beginning Farm Loan Program. The Department has indicated that it has received over 1,500 inquiries regarding the program during the past two years. ^ In addition, the Department has indicated that nearly half of all agricultural producers may have need to transfer ownership of their land in the next 10 to 15 years, and the availability of capital to facilitate this transfer to a new generation of farmers is in doubt. ^^ 35 Similar Policies and Programs It is not known how other farm states plan to -•'^^ continue operation of similar programs to assist beginning farmers. Therefore, there are no examples that can be studied. Nevertheless, a possible approach to provide financing for the Beginning Farm Loan Program might be to adopt the funding mechanism proposed under Senate Bill 425 (SB 425) and Senate Bill 426 (SB 426), which were debated in the 1985 Legislature. ' SB 425 would have provided for allocation of 25% of all revenue deposited in the coal tax fund for investment in banks, with the agreement that the banks would in turn provide loans under the Beginning Farm Loan Program and the Agricultural Loan Guaranty Program. A companion bill, SB 426, would have authorized an assessment on agricultural products to fund the capital reserve account of the Montana Agricultural Loan Authority. The capital reserve account is a fund that is used for the payment of principal, interest, and a redemption premium on bonds sold by the Montana Agricultural Loan Authority. There was significant support for SB 425 during the 1985 legislative session. The bill was approved on a 33-17 vote on third reading in the Montana State Senate. However, it was ruled that passage of SB 425 required a three-quarters vote of each house, and SB 425 failed to advance to the Montana House of Representatives. It is believed by legal counsel that this ruling was in error and that SB 425 only required a majority vote in order \ 36 to receive passage. Because SB 425 failed, SB 426 was indefinitely postponed and died in the process. Both proposals may warrant renewed consideration by the 1987 Legislature. Option #6 Establish a progrcun to promote the marketing of Montana grain by distinguishing it as a premium commodity and by ensuring the quality and identity of delivered shipments. o '.• Explanation This option would create a specific program to improve the marketing of Montana grain. Under the program, the state would assist farmers, agricultural cooperatives, and commodity dealers in the transportation, handling, and marketing of a quality-preserved Montana grain. In providing such assistance the state would: (1) locate grain elevators, warehouses, and other handling facilities in Montana that will provide to buyers grain which conforms with ; certain state standards; (2) arrange with shippers to move and transport grain in a manner so that the quality and identity of the grain are preserved; and (3) solicit and promote the sale of quality-preserved Montana grain in both foreign and domestic markets. 37 The proposed program would be intended as a voluntary marketing program. However, the program would involve mandatory standards for grain marketed under the program. These standards would include the following requirements: (1) The grain must be produced and harvested in Montana. (2) The grain must not be blended or in any way intermingled with grain of a different type, contrasting origin, or lower quality. (3) No dockage or foreign material, including dust from any source, once removed from the grain, may be recombined with the grain. (4) No dockage, water, or foreign material may be added or knowingly introduced to the grain if the result would be to reduce the grade or quality of the grain or if such action causes the grain to become more susceptible to spoilage. (5) No blending of grain with similar grain of different moisture content would be allowed if the difference in moisture contents being blended is more than 1%. In addition to these requirements, grain must meet any other specifications for quality, such as for protein content, as may be agreed upon between the buyer and the producer or between the buyer and the producer's agent. Nothing under the state standard for grain would prohibit the treatment of grain to suppress, destroy, or 38 prevent insects and fungus injurious to the grain; the addition to grain of a dust suppressant; or the combination of confetti or other similar material with grain in an amount necessary to facilitate identification of the grain. In order to ensure the quality of grain marketed under the program, the state would be granted authority to investigate grain marketing and handling practices. Furthermore, the state would enter into agreements with other states to ensure that Montana grain is not blended or intermingled with dissimilar grain as it is loaded in or aboard a carrier or container bound in interstate or foreign comm.erce. It is envisioned that Montana officials would inspect and certify all grain marketed under the proposed program to ensure that such grain meets state standards. However, the state would not require any grading or inspection of grain that might conflict with the United States Grain Standards Act. Overall, proponents hope that the program will: (1) enhance the marketability of Montana grain; (2) increase premiums paid to producers; and (3) stimulate the sale of grain produced in Montana . Discussion This option addresses the concern that inadequate federal grain standards have hindered the marketing of Montana grain. The problem is that the federal grain standards allow so much dust, chaff, broken kernels. 39 foreign material, and other matter in grain that foreign buyers are complaining about the poor quality of U.S. grain, including grain produced in Montana. -^^ The problem has generated a fear that buyer dissatisfaction could combine with other factors so that the United States might become a supplier of last resort. -^^ The price of U.S. grain is higher in the world market, and there are alternative supplies of quality grain available from U.S. competitors. Together, price, competition, and the quality problem could cause buyers to purchase their grain elsewhere. The current problem stems from inadequate federal standards governing dockage, foreign material, and blending. The problem of dockage is basically a problem that involves the underreporting of nongrain matter present in grain. This nongrain matter includes stems, chaff, dirt, stones, and other material, collectively known as "dockage". Under the federal grain standards, dockage is certificated by rounding down to the nearest half or whole percent the amount of dockage found in a sample of grain. Thus, if the measured sample of grain contains 0.49% dockage, it is certificated as having 0% dockage. If the sample is 0.99%, it is reported on the grading certificate as 0.5% dockage. ^° Buyers question the adequacy of this method for certificating dockage because the system results in more dockage than is reported on the official grading certificate. While the buyer does not pay the seller for dockage, he must pay the freight and levy charges on grain shipments that include dockage. The buyer may 40 also incur costs for reconditioning the grain. Understandably, buyers resent these additional costs. The problem of foreign material is related to the issue of dockage. Under the federal grain standards, foreign material is all matter other than grain that remains in a sample of grain after the removal of dockage and shrunken and broken kernels. ' Generally, there is little difference between dockage and foreign material except that foreign material is not as easily removed from grain. The problem is that, on top of allowable dockage, federal grain standards permit certain percentages of foreign material in grain. In the case of U.S. No. 1 Wheat, exporters are allowed 0.5% foreign material. •^° Thus, it is possible to sell U.S. No. 1 Wheat that is certificated as being dockage-free, but that actually contains 1% nongrain matter, including foreign material The final problem relates to blending. Blending is used by exporters to improve gluten strength, -^^ to achieve an average moisture content, or to reach a specific protein level in grain. ^" Blending is also used to facilitate the sale of low quality grain. ^■'- In addition, there are indications that blending is used to bring grain quality to minimum tolerances for dockage and foreign material.'*^ A solution to these problems could come through revision of the federal grain standards. However, the standards, which have been in effect since 1917, haven't changed much since their adoption. And there does not seem to be support for major revisions in the federal standards. . . 41 Another solution would be the adoption of state grain standards. However, the adoption of any mandatory standards for grain, other than the federal grain standards, appears to be prohibited under both the Commerce Clause of the U.S. Constitution and the Federal Grain Standards Act. On the other hand, the adoption of "voluntary" or "non-regulatory" grain standards as proposed under Option #6 may be permissible.'*^ Thus, ''' Option #6 could provide Montana a means for addressing the grain quality problem, which could give Montana producers a marketing advantage. Similar Policies and Programs In 1985, the Kansas State Legislature considered SB 23, a bill to establish a 100% Kansas finest quality grain marketing program. Under the program, the state Board of Agriculture would promote purchases of Kansas quality-preserved grain. In addition, the board would adopt state standards for each type of grain marketed under the program. SB 23 was not enacted. ^^ During its 1986 regular session, the Nebraska State Legislature debated LB 1216, which would have required the inspection of all grain exported from the state to ensure the removal of foreign material, including "damaged and broken kernels of grain, dockage, broken glass, gravel, animal filth, and any other unknown substance which would degrade the quality of such grain". ^^ LB 1216 died in committee. Prompted by concerns regarding the quality of U.S. grain exports. Congress recently enacted the "Grain Quality Improvement Act of 1986". This act amended the 42 U.S. Grain Standards Act to prohibit: (1) the recombining of dockage or foreign material with grain once it has been removed from the grain; and (2) the adding of dockage or foreign material to grain. ^° In August 1986, the Federal Grain Inspection Service issued final rules to revise the U.S. standards for wheat to certificate dockage to the nearest 0.1%. The new rules will take effect May 1, 1987. These rules were adopted to eliminate the underreporting of dockage in wheat. ^' A recent study conducted by the State of Montana indicates that the quality of Montana grain has become a marketing issue due to the level of blending allowed under the federal grain standards. ^^ The study revealed these specific problems: (1) The quality of white wheat is not comparable to Canadian or Australian wheat because of dockage. (2) There is frequent blending of rice with wheat. (3) Recently the protein content of wheat has not met contract specifications. (4) There is dissatisfaction with the amount of dockage and foreign material in the wheat delivered abroad. The study recommended that the state take action to distinguish Montana grain as a premium commodity and assure the cleanliness of delivered shipments. ^^ 43 Option #7 Authorize creation of a marketing division in the Montana Department of Agriculture to promote Montana agricultural products in both foreign and domestic markets and to assist producers and marketers in dealing with potential buyers, trade representatives, and government agencies. Explanation This option would provide for the establishment of a marketing office within the Montana Department of Agriculture. Currently, there is no formally constituted division in the Department to assist in the marketing of agricultural products. However, the Department is engaged in some marketing activities. These activities include market research, participation in trade shows, and assistance to producers and others who seek to market agricultural products. ^^ By and large though, the Montana Department of Agriculture carries out its marketing activities without much state financial assistance. It has received sufficient funds for only one full-time equivalent employee who has marketing responsibilities. As time allows, the director of the Department works to promote Montana agricultural products, and he meets with foreign trade delegations whenever they visit the state. Nevertheless, the amount of time he can devote to marketing activities is limited, and these activities conflict with his main responsibility as head of a state administrative agency. The option being proposed has as its purpose the development of a coordinated state marketing effort to 44 boost the sale of Montana agricultural commodities. Underlying this option is the belief that it is no longer sufficient to grow good crops, but rather, it is necessary to compete for market outlets for such crops. This option is based upon a realization that agricultural trade would provide economic benefits for the entire state, and would especially improve the state's agricultural economy. Therefore, this option proposes that the state provide for an adequately staffed and funded program to give assistance to those in agriculture who seek help in marketing their agricultural products, either in foreign or domestic markets. Such assistance could include marketing, market research, trade promotion, agricultural exhibits, facilitating private trade efforts, and responding to foreign trade inquiries. Discussion It is important to note that agricultural marketing in Montana is conducted in a somewhat fragmented manner. ^■'- Agricultural marketing is carried out by the Montana Pork Research and Marketing Committee, the Montana Beef Council, the Montana Wheat Research and Marketing Committee, and the Montana Department of Commerce, in addition to the Montana Department of Agriculture. The marketing effort of these agencies is limited and disperse, with much of the marketing being performed by commodities groups, national agricultural organizations, and other private parties. 45 The Montana Pork Research and Marketing Committee concerns itself only with the promotion of pork and pork products. It spends its funds chiefly to conduct promotional programs with the National Pork Producers Council, and provides information on a variety of matters relating to pork production and markets for pork.^^ The committee does hot carry out its own marketing effort. Indeed, the committee is prohibited from setting up its own research unit or marketing staff to carry out research, promotion, and marketing of pork. It is required to contract with national organizations and public or private groups to perform its marketing and research functions.^ The Montana Beef Council conducts a similar limited marketing program. Under the program, the Montana Beef Council provides funds to the Beef Industry Council of the National Livestock and Meat Board to support the national beef promotion programs. Eighty percent of all program funds are allocated to the national promotion programs. The remaining 20% is spent for in-state 54 programs.-"^ The Montana Wheat Research and Marketing Committee also has a limited marketing function. This function is to provide for research and marketing for wheat and barley grown in Montana. Like the Montana Pork Research and Marketing Committee, the Montana Wheat Committee does not primarily engage in its own research and marketing activities. Rather, the committee provides for research and marketing mainly by entering into contracts and agreements with public and private organizations. The committee is not allowed to employ 46 researchers, professionals, or scientific personnel to perform its marketing and research function, except under contract. ^ The Montana Department of Commerce also conducts an agriculture-related marketing program, which is founded in the Business Assistance Division. This program, though, does not generally serve the needs of most agricultural producers. The program does not concentrate on the development of markets for raw agricultural commodities. Instead, to the extent that marketing assistance is provided in an area related to agriculture, the program is mainly concerned with the promotion and marketing of value-added or processed agricultural goods. ^° Thus, what seems to be needed is a broad program of assistance for the marketing of all agricultural commodities and products, especially a program that would provide coordination of all current marketing efforts in agriculture. Establishing such a program within the Montana Department of Agriculture might be both logical and consistent with previous legislative policy. The Montana Department of Agriculture is the constitutionally mandated agency responsible for protecting, enhancing, and developing all agriculture in the state. With respect to marketing, the Legislature has already determined that the Department should have a primary marketing role. Existing statutes provide that the Montana Department of Agriculture should coordinate marketing in the state and endeavor to develop new and improved systems of marketing.^' The problem, then, seems to be that the Department simply requires more 47 funding to properly carry out a marketing program and it needs increased authority to eliminate overlapping and duplication of marketing efforts among other agencies. It must be pointed out that, without some ' improvement in agricultural marketing, Montana's agricultural markets may be eroded because other states and foreign nations are aggressively marketing their agricultural products to expand their share in the marketplace. The state has received a clear indication from the Japanese that this could be a problem for Montana. During a 1985 trade mission to Japan, an official of a large Japanese trading company asked Montanans how they expected to trade with Japanese companies when they visit the country only once every two years and when they make no effort to learn about Japan and its language. The Japanese official said that competition is stiff for business in Japan, and 26 states had conducted trade missions to Japan in the first half of the year. Some of the states maintained offices in Japan to follow up on trade leads. ^° The message should be clear. Montana is at a clear trade disadvantage because it lacks an adequate marketing program. Similar Policies and Programs A number of states have established programs to promote their state's agricultural products. The clear leader in agricultural market development is Minnesota. In one year, the state's total commitment to export trade, in both the state agriculture and commerce agencies, went from two people and a budget of $176,000 to 31 people and a budget of $6.65 million. With this 48 change, Minnesota created the Minnesota Trade Office. This agency is located in the state's agriculture department and has two main divisions: an International Trade Division, which promotes manufactured products and services, and an Agricultural Marketing Division, which promotes Minnesota agricultural products and services, both domestically and internationally. In addition, Minnesota has an Export Information Office, which gathers and disseminates information about Minnesota products, foreign trade leads, and international trade organizations. -^^ Some other examples of state agricultural marketing programs are these: Wisconsin has created a Center for International Agribusiness Marketing to promote the export of state agricultural and agribusiness products in foreign markets. ^° Kansas has established the International Wheat and Livestock Program at Kansas State University to assist producers in marketing livestock products overseas and to assist foreign buyers. °-'- Texas has developed an export trade program to expand overseas markets for state agricultural products. Texas, however, is trying to identify new export markets and unserved niches in existing markets. The state has also hired trade experts with trade experience and language skills for specific regions of the world. The state uses federal embassies and Foreign Agricultural Service offices as trade offices overseas." 49 Option #8 Restrict the amount of farm losses that may be deducted against nonfarm income for Montana income tax purposes. Explanation This option would limit the tax deduction for farm losses based on a graduated system that would cap farm loss deductions at $20,000 for individuals earning less than $75,000 in nonfarm income, and completely eliminate the farm loss deduction for individuals who earn $400,000 or more in nonfarm income. This limitation would apply to all net farm losses from any trade or business, rental activity. Subchapter S. corporation, partnership, estate, or trust. The limitation would not extend to any deductions currently allowed for certain capital losses and recognized losses from the sale, exchange, or involuntary conversion of property. In the case of married individuals, the farm loss deduction would be limited based on the combined nonfarm adjusted gross income of both spouses, whether they elect to file a joint return or file separately. This is considered necessary to prevent married persons from transferring income or losses to their spouse in order to avoid the limitation on the deductibility on farm losses. For the purpose of consistency, the limitation would apply to computation of the net operating loss deduction. Under current law, a net operating loss sustained in one year may be used to reduce the taxable income of other years. ^-^ This loss may be carried back 50 I to earlier years and give rise to tax refunds for those previous years. If the loss is not exhausted in earlier years, it may be carried forward to later years and reduce the tax for those years. Hence, the limitation on farm losses would be applied to net operating losses to ensure that losses in excess of the limitation during one year may not be used as a net operating loss deduction in another year. Overall, this option is intended to: (1) discourage the operation of Montana farms and ranches as tax shelters or as tax-loss farming operations; and (2) eliminate tax benefits to persons who engage in farming for other than food or fiber production. According to the Montana Department of Revenue, this option would result in an estimated $4.4 million increase in state tax revenues." Discussion n Farm losses are generally deductible in computing an individual's taxable income if such losses: (1) are incurred in a trade or business; or (2) result from transactions entered into for profit. °^ y Deductible losses are of several kinds consisting primarily of: (1) losses from the sale or exchange of property; (2) losses attributable to property held for the production of rents or royalties; 51 (3) casualty and theft losses; and (4) net operating losses. ° Losses incurred in normal farm operations or in profit transactions commonly appear as an excess of ' deductions over income. Otherwise, the losses result * from some determinable event or identifiable transaction occurring during the tax year. An excess of deductions over gross income constitutes a net operating loss, which traditionally has been fully deductible from an individual's income from other sources. To the extent that there remains a net loss after gross income for the year has been set off against it, the loss may be carried back three years or carried forward 15 years to reduce taxes in those years."' The deduction for farm losses and other income tax provisions has been the subject of much criticism due to tax sheltering and other practices that have arisen under the tax laws. Recent studies indicate that the tax laws provide opportunities for nonfarmers to reduce or eliminate tax liability on their nonfarm income by investing in farming. These laws, it has been found, allow nonfarm investors to utilize tax losses from their farming activities to offset their other income, thereby enabling them to use farming as a tax shelter. ^^ Generally, a good tax shelter must contain the following features: (1) large current deductions for expenses, depreciation, and interest on borrowed money; 52 and (2) deferral of taxable income for possible treatment of capital gains. These features of a tax shelter may lead to a lower tax liability for the investor to the extent that deductions can be claimed against income that is taxed at the highest tax rates, while income is delayed or reported in a way that it becomes subject to lower tax rates. ^ Several provisions of the income tax laws make farming attractive as a tax shelter. These include: (1) the use of cash accounting; (2) the immediate deductibility of certain capital expenditures; (3) accelerated cost recovery periods for the depreciation of farm assets; and (4) capital gains treatment for income from farm assets that have been developed through deductible costs.'" Combined, these tax provisions provide the elements necessary for a tax shelter, because they permit the sheltering of ordinary income from taxes through both income deferral and conversion of ordinary income into capital gains, which are taxed at lower tax rates than ordinary income. The effect of these income tax provisions on agriculture is generally negative. According to a study conducted for the Joint Economic Committee of Congress, these tax provisions have artificially inflated farmland values, helped concentrate farmland i. ownership with high-income farmers and nonfarmers, and increased supplies and lowered prices for some farm commodities, and possibly for all commodities in general. ' 53 In addition, Montana State University researchers have found that the agricultural tax laws "provide a major economic incentive for investors who do not plan to retain ownership of converted land to convert rangeland to cropland" (i.e., sodbusting) . '-^ These researchers have suggested that various features of the tax system should be altered to reduce the tax incentives for such practices. One suggestion is to exclude the allowance of deductions to offset income earned from nonfarm sources.'-^ Similar Policies and Programs In recent years, attempts have been made at the national and state level to restrict special tax writeoffs for farm losses. The Wisconsin State Legislature recently enacted a bill that: (1) restricts the amount of farm losses that can be deducted from nonfarm income for state tax purposes; and (2) excludes individuals from taking accelerated depreciation on farm buildings and machinery when annual nonfarm income exceeds $55,000 or gross farm receipts exceed $155,000 a year. The tax writeoff provisions of the Wisconsin law limit the farm loss deduction based on a sliding scale that eliminates the deduction for persons who earn $400,000 in nonfarm income, but permits allowable losses for individuals having lower off-farm incomes. The law exempts all persons who have nonfarm income of $55,000 or less.' In 1985, U.S. Senator James Abdnor (R-South Dakota) introduced a bill to limit to the national median family income the amount of farm losses that could be deducted 54 against nonfarm income by high income taxpayers in competition with full-time, family-size farm operations. ^ His bill, S. 244, was supported by the Farm Bureau, Farmers Union, American Agricultural Movement, National Farmers Organization, National Grange, Women Involved in Farm Economics, and other farm organizations. The concept of the bill also was endorsed by the National Governors' Association.'" The federal Tax Reform Act of 1986, Pub. L. No. 99-514, contains new limitations on the deduction of losses from passive farming activities. Such passive farming activities include the conduct of any trade or business, or any investment activity, in which the taxpayer does not materially participate. Under the Tax Reform Act, losses from a passive farming activity may be deducted only against the income from other passive activities. Passive losses may not be used to offset income from active sources, such as a business or profession actively carried on by the taxpayer, or against portfolio income. Passive losses that cannot be used in any tax year may be carried over to future years but continue to apply only to passive income.'' A special rule applies to rental activities. The rule provides a $25,000 allowance for losses from rental activities, including the rental of real estate for agricultural purposes. This $25,000 allowance is phased in for any taxpayer whose income exceeds $100,000. 55 The new limitations in the deduction for passive activity losses apply only to individuals, estates, trusts, closely held C. corporations, and personal service corporations. The limitations do not apply to Subchapter S. corporations. Option #9 Refocus agricultural research to better meet the needs of Montana's farmers and ranchers, ? as follows: (A) Redirect university agricultural research and extension services to the primary purposes of increasing net farm income, reducing the overall production costs of farming, promoting sound agricultural resource management, » expanding demand for farm products, and developing new agricultural markets. (B) Require the Montana Agricultural Experiment Station to accelerate research on the development of a sawfly resistant, solid stem wheat and to make wheat research a top program priority. Explanation ^ This option is based upon concerns regarding program priorities and direction within the state-supported university agricultural research and extension agencies. The mission of the state's land grant college-based research and extension system has long been the development and dissemination of new knowledge and information to improve agriculture in I 56 Montana. However, there are now concerns about how this mission should be accomplished during a time of financial distress in agriculture. There are several key concerns that have been expressed regarding the program priorities and function of the university research establishment. These concerns specifically pertain to the Montana Agricultural Experiment Station and the Montana Cooperative Extension Service. The first major concern is that the emphasis of state agricultural research has been primarily to serve production maximizing research goals. In other words, it is believed that, by and large, agricultural research tends to concentrate on increased yields, frequently in the name of efficiency, but without regard to the need for profitability. Associated with this concern is a sense that production research has contributed to current financial problems in agriculture, mostly because such research tends to require higher capital inputs, which have resulted in farm debt, and because increased production has resulted in an oversupply of agricultural products that has undercut commodity prices and created other diseconomies. According to this concern, increasing net farm income and reducing the capital requirements of farming should be the first priority in agricultural research, and production research should support these purposes. Another main concern is that state agricultural research overly emphasizes the modification or control of nature and that research generally promotes reliance upon costly commercial chemicals, fertilizers, and other synthetic inputs. This concern holds that agricultural 57 research concentrates too much on biotechnology, genetic manipulation, development of hormones and growth, stimulants, and testing for the chemical tolerance of crops. These concerns speak to a need for better agricultural resource stewardship and the long-term sustainability of our human, economic, and natural resource base. Still another concern regards the opportunity for increased profitability that might be obtained with additional marketing research and research into quality and end-product utilization of agricultural commodities. This concern emphasizes that the problem of declining sales and profits in agriculture must be addressed through university marketing research, development of innovative marketing strategies, and research to make our agricultural products more competitive in the marketplace and to expand demand for these products. A fear associated with this concern is that the state is failing to maintain its competitive advantage in agricultural markets and that the state's agricultural producers may soon lose their ability to find markets for their products. The final concern relates to Option #9(B). This option would require that greater measures be taken to deal with wheat infestation and to provide for research to protect and improve the state's wheat industry. Specifically at issue is the adequacy of state research to control sawfly problems in the prime wheatland of Montana. Also at issue is the lack of an adequate wheat breeding program. The perception is that not enough is being done by the Montana Agricultural Experiment Station to find ways to halt the devastation of the 58 wheat crop by the sawfly. It is believed, according to this view, that what must be done is for the university to develop a sawfly resistant, solid stem wheat. Part of this concern is that the state simply does not have a good wheat breeding program. Therefore, it is proposed that wheat research should be a priority in the state's agricultural research program. Discussion There seems to be considerable substance to the concerns that have been raised. An evaluation of the research priorities for the Montana Agricultural Experiment Station reveals that: (1) there is no research to expand export markets; (2) relatively little research is conducted to expand demand for farm products or to improve efficiency in the marketing system; (3) substantial research does exist to protect crops from damage by insects, diseases, and other hazards; however, only moderate research is directed toward control of insects affecting field crops; and (4) research to decrease real production costs is fundamentally linked to increased production and other yields-related research. Table 1, which appears on page 63, presents a summary of expenditures for agricultural research conducted at the Montana Agricultural Experiment Station. These expenditures are reported according to major research project goals, as classified under the national Current Research Information System (CRIS). 59 As can be seen from Table 1, there was no expenditure in fiscal year 1985 for research in the area of export marketing under Goal VI. In addition, only 2.6% of all research expenditures were dedicated to improving marketing systems, as provided under Goal V. Furthermore, only 4.6% of all research was in Goal IV, which is to expand the demand for farm products by improving products and processes and enhancing product quality. ;^, . i, . i; Clearly, the main emphasis of research at the Montana Agricultural Experiment Station lies in research to fulfill Goals II and III. Research in these two categories accounts for almost three-fourths of all research expenditures (73.8%). Research in these categories includes: (1) Goal II — to protect crops and livestock from insects, disease, and other hazards; and (2) Goal III — to produce an adequate supply of farm products at decreasing real production costs. An additional breakdown of research projects within each research category shows the specific focus of the university's main research effort. This information is summarized for projects in Goals II and III and appears in Tables 2 and 3 on pages 64 and 65. Table 2 indicates that research in Goal II mainly focuses on ways to: (1) control diseases and nematodes of field crops and range; (2) control weeds and other hazards affecting field crops and range; and (3) control diseases of livestock and other animals. Research in these three areas accounts for three-fourths of all expenditures in Goal II. Less emphasized in this area of research is work to control damage from insects and other infestations affecting field crops and range. 60 The projects in Goal III are concentrated in two major areas, as shown in Table 3. Over 67% of all expenditures for research in Goal III are in these two areas. Research in these two main areas is for: (1) the improvement of biological efficiency in the production of field crops; and (2) the improvement of biological efficiency in the production of livestock, poultry, and other animals. Based upon the CRIS research classification system, this type of research seems to emphasize increased yields to meet foreign and domestic needs. Moreover, this research does not have the reduction of total costs as its purpose. Rather, this research is defined as research to decrease cost per unit of production, with the primary objective of providing adequate supply of farm products to allow the expansion of exports and increased consumption. A decrease in the average per unit costs of production is not the same as a reduction in the total costs of an operation at minimal input levels. The distinction is both important and fundamental. Research to reduce average per unit costs generally seeks attainment of greater productive efficiency that is achieved through application of greater inputs, the use of more machinery, and the employment of expensive production methods. Per unit costs may be lower; however, total overall costs may be higher. Further scrutiny of research under Goal III may be justified. Concern about the direction of agricultural research also extends to the Montana Cooperative Extension Service, which is the university's research outreach program. In addition, however, there seem to 61 be other concerns which relate to the Extension Service's work priorities and its overall purpose. The work priorities of the Montana Cooperative Extension Service seem to provide a basis for serious concern. At a time when the state's agricultural producers have requested farm management and financial planning assistance to help them survive a financial crisis in agriculture, the Montana Cooperative Extension Service has allocated 24.7% of all its resources to 4-H and youth services. This is revealed in a summary of the Extension Service's work priorities, which appears on page 66. It must be asked whether this is an appropriate work priority, one for which the state has appropriated $4.5 million. ^^ Another concern regards the mission of the Montana Cooperative Extension Service. The problem is that state statutes do not seem to adequately define the purpose and function of the state Extension Service. Indeed, only a few statutes specifically relate to establishment and operation of the Montana Cooperative Extension Service. And, section 20-25-226, MCA, which establishes the Cooperative Extension Service in Montana, merely assents to the terms and provisions of the Smith-Lever Act of 1914 that created the federal extension program. As a result, it seems that the Montana Cooperative Extension Service lacks a clearly focused mission to serve the state's farmers and ranchers. It might be fitting for the Legislature to provide the Montana Cooperative Extension Service greater program direction, as well as a carefully defined purpose. 62 Table 1 FY '85 Agricultural Experiment Station Research Program by Goals (including grants, contracts, and LARRL). Goal I - Insure a stable and productive agriculture for the future through wise management of natural resources. Expenditures Percent $ 1,667,032 14.7% II - Protect forests, crops, and livestock from insects, diseases, and other hazards. 2,972,791 26.1% III - Produce an adequate supply of farm and forest products at decreasing real production costs. 5,419,820 47.7% IV - Expand the demand for farm and forest products by developing new and improved products and processes and enhancing product quality. 518,533 4.6% V - VI - Improve efficiency in the marketing systems. Expand export markets and assist developing nations. 301,542 0 2.6% 0.0% VII - Protect consumer health and improve nutrition and well-being of the American people. 58,381 0.5% VIII - Assist Americans to improve their level of living. 108,045 1.0% IX - Promote community improvement including development of beauty, recreation, environment, economic opportunity, and public services. V Total 322,585 $11,368,729 2.8% 100.0% Source: Montana Agricultural Experiment Station, Montana State University, Bozeman, Montana. 63 Table 2 " FY '85 Projects in Goal II: Protection from Insects, Diseases, and Hazards. Research Problem Area 1 Control of insects affecting forests. 2 Control of diseases, parasites, and nematodes affecting forests. 3 Prevention and control of forest and range fires 4 Control of insects, mites, slugs, and snails on fruit and vegetable crops. 5 Control of diseases and nematodes of fruit and vegetable crops. 6 Control of weeds and other hazards to fruit and vegetable crops. 7 Control of insects, mites, snails, and slugs affecting field crops and range. 8 Control of diseases and nematodes of field crops and range. 9 Control of weeds and other hazards of field crops and range. 10 Control of insects and external parasites affecting livestock, poultry, and other animals 11 Control of diseases of livestock, poultry, and other animals. 12 Control of internal parasites of livestock, poultry, and other animals. 13 Protect livestock, poultry, and other animals from toxic chemicals, poisonous plants, and other hazards. 14 Protection of plants, animals, and man from 9,307 0.3% harmful effects of pollution. Total $2,972,791 100.0% Source: Montana Agricultural Experiment Station. 64 Expenditures Percent $ 0 0.0% 0 0.0% s. 0 0.0% 8,756 0.3% 17,718 • 0.6% 40,326 1.4% 330,750 11.1% / 613,637 20.6% 754,005 25.4% 0 0.0% 827,763 27.8% 370,529 12.5% 0 0.0% Table 3 FY '85 Projects in Goal III: Producing an Adequate Supply of Products at Decreased Real Production. Research Problem Area ; 1 Genetics and breeding of forest trees. 2 New and improved forest engineering systems. 3 Economics of timber production. 4 Improvement of biological efficiency of fruit and vegetable crops. 5 Mechanization of fruit and vegetable crop production. 6 Production management systems for fruits and vegetables. 7 Improvement of biological efficiency of field crops. 8 Mechanization of production of field crops. 9 Production management systems for field crops. 10 Reproductive performance of livestock, poultry, and other animals. 11 Improvement of biological efficiency in production of livestock, poultry, and other animals. 12 Environmental stress in production of livestock, poultry, and other animals. 13 Production management systems for livestock, poultry, and other animals. 14 Bees and other pollinating insects. 15 Improvement of structures, facilities, and general purpose farm supplies and equipment. 16 Farm business management. 17 Mechanization and structures used in production of livestock, poultry, and other animals. 18 Non-commodity-oriented biological technology and biometry. Total Expenditures Percent $ 0 0.0% 0 0.0% 0 0.0% 131,669 2.4% 0 0.0% 4,951 0.1% 1,596,579 29.5% 46,621 0.9% 385,477 7.1% 502,907 9.3% 2,048,490 37.8% 21,902 0.4% 295,743 5.4% 0 0.0% 97,287 1.8% 69,687 1.3% 0 0.0% 218,507 $5,419,820 4.0% 100.0% Source: Montana Agricultural Experiment Station. 6'i I .; 5.2 4.0% 26.0 19.8% 32.3 24.7% 131.0 100.0% Table 4 Extension Professional Staff Years (FTE's) by Work Priority. (FY '86 Update) Work Area Staff Years % Staff Time 1 Agricultural and natural 67.5 51.5% resources. 2 Community development. 3 Home economics. 4 4-H and youth development. Total Source: Office of the Legislative Fiscal Analyst, Helena, Montana. Similar Policies and Programs In 1984, Minnesota undertook a serious examination of state agricultural research. At the conclusion of this process, Minnesota developed a specific proposal to refocus agricultural research and extension services in a new direction for reasons similar to those underlying Option #9(A) J'^ In July 1985, the Washington State Legislature created the International Marketing Program for Agricultural Commodities and Trade Center (IMPACT) at Washington State University. Under the IMPACT program, university research has embarked upon work to address international marketing problems and to boost sales of on State agricultural products. °" 66 A recent article in the monthly journal of the Council of State Governments strongly recommends that states should direct educational outreach and research toward marketing and other means of improving opportunities for profitability in agriculture. The article indicates that, for too long, state land grant colleges and extension services have emphasized production at the expense of financial management. •'■ The mission of cooperative extension is being questioned on a national level. Congress recently held a series of hearings to review the overall mission and goals of cooperative extension in the United States. At these hearings, a number of issues were raised, the most controversial involving program priorities, program effectiveness, clientele, and duplication of other governmental services. °^ The federal Office of Management and Budget has taken its criticism to the point of recommending that federal funding for cooperative extension services be eliminated. °^ The issue was recently the focus of discussion at the annual meeting of the American Agricultural Economics Association, where members debated the topic of restructuring cooperative extension to meet changing needs in agriculture. Participants in the debate generally agreed that cooperative extension lacks program direction and needs to establish priorities regarding its mission and clientele. °^ 67 option #10 Provide for a state hunting/recreational fee access program as a means of: (1) allowing farmers to earn additional farm income by providing them an alternative use for their land; (2) controlling game damage on agricultural lands; and (3) promoting greater satisfaction of landowners for their contribution to wildlife habitat."^ Explanation This option is suggested as a possible means to address the critical need of many farmers for increased income from their land and to meet the demand for greater public access to open, private land for recreational and hunting purposes. This option also gives consideration to providing an alternative use for farmland and to allowing increased hunting as a way to - control game damage on agricultural property. The proposed option would improve recreational and hunting access to private farmland by allowing landowners to receive compensation for providing public access to their land. Under this option, such compensation could be provided by controlled fees or through a coupon system administered by the state. In any event, the state would assist in providing the public with information about available recreational and hunting access to private lands in Montana. The option contemplates that some changes in the state's liability laws might have to be adopted. It is sensed that liability problems could impose an 68 impediment to recreational and hunting access that is provided based on compensation to the landowner. Discussion The proposed option may hold some promise for additional private revenue and increased benefits from an alternative use of farmland. ^^ If there is strong public demand for access to private farmland, farmers could earn income to supplement farm earnings. This income would be derived from the compensation allowed for providing increased public access. With so much negative feeling aroused because of game damage, farmers may gain increased satisfaction for maintaining wildlife habitat if they are compensated in the manner proposed. However, tradition may limit public acceptance of this option. The public may view access to land as a right by heritage even though such access is to private land. This perspective may be particularly held by hunting and sporting enthusiasts, who also must pay for hunting permits and licenses. Furthermore, liability questions could complicate matters. According to some experts, while the economics exist for many small landowners to achieve greater revenue from recreational or sporting uses for their land as compared to income that might be earned by raising a crop, liability exposure could be too great to permit development of increased access to private land.^"^ Finally, it does seem that providing an alternative use of farmland could be very important at this time. Under the federal Conservation Reserve Program, which was enacted as part of the 1985 Farm Bill, as many as 69 three million acres of agricultural land could be taken out of agricultural production in Montana. The program is intended to keep certain highly erodible lands out of crop and livestock production for 10 years. This land would be seeded into grass and planted with shrubbery. The land would be potential wildlife habitat. ^^ The proposed option would provide a permitted, alternative use for this land. Similar Policies and Programs In response to the farm crisis in the rural areas of the state. New Jersey enacted the Open Lands ' ' Management Act. The law provides $350,000 in grants to landowners for improved public access, allows some protection against damage to property, and provides landowners additional immunity from liability. ^^ Wyoming has instituted a prograift t6 provide landowners compensation for hunting access to private land. Under the Wyoming program, licensed hunters who are granted access to the land must furnish the landowner a coupon following a successful kill. The landowner may redeem the coupon to receive compensation from the state. ^^ 70 III. SDBCOMMITTEE DELIBERATIONS AND RECOMMENDATIONS The Joint Interim Subcommittee on Agricultural Problems held nine meetings as part of its study on the economic problems of Montana agriculture. These meetings were held between August 1985 and December 1986 and included hearings in Billings, Great Falls, Helena, and Kalispell. The following is a summary of Subcommittee deliberations and other action at these meetings. First Meeting The first meeting of the Subcommittee was held on August 30, 1985, in Helena. At this meeting, the Subcommittee received presentation of the staff's proposed study plan and work schedule for HJR 57. In addition, the Subcommittee accepted public comment on proposed study issues. Testimony opened with an appearance by Montana U.S. Senator John Melcher. Senator Melcher told the Subcommittee that the nation's leaders must take action on agricultural trade issues to avoid a deep economic recession. Specifically, he said. Congress and the President should establish a reciprocal trade policy that would require Japan and the European Common Market to accept more agricultural products from the United States. Stressing that measures must be taken to protect American interests in trade matters. Senator Melcher told the Subcommittee that political pressure was needed to force Congress ^1 and the Reagan administration to take necessary action. Senator Melcher also offered his views on major federal farm legislation. He said he was concerned about possible Farmers Home Administration (FmHA) farm foreclosures, and he hoped to see legislation that would encourage the FmHA to ease restrictions against the leasing of land acquired through a farm ownership loan. Senator Melcher concluded his testimony by expressing optimism that the U.S. Senate would pass a new farm bill by the end of September. Following Senator Melcher 's comments, the Subcommittee heard from spokesmen representing various farm groups and other organizations, including Montana Farmers Union, Montana Cattlemen's Association, Women Involved in Farm Economics, Montana Grain Growers Association, Alternative Energy Resources Organization, Northern Plains Resource Council, Montana Wheat Research and Marketing Committee, Montana Department of Agriculture, and Montana State University. At the close of the comment period, the Subcommittee discussed possible approaches to conducting its study. Following this discussion, the Subcommittee decided to direct the staff to poll committee members in order to establish study priorities. Second Meeting The Subcommittee held its second meeting on the evening of February 20, 1986, in Great Falls, following a day of activities at a symposium on agricultural research sponsored by the Montana Agricultural 72 Experiment Station. The purpose of this meeting was to hear testimony from concerned citizens regarding state action to address the state's agricultural problems. The Subcommittee heard from a number of farmers, ranchers, and special interest groups, including: Montana People's Action Family Farm Task Force, Montana Farm Counseling and Advocacy Coalition, Northern Plains Resource Council, Agricultural Preference Coalition, and Montana Bankers Association. At this meeting, a number of proposals were made for legislation to address the problems of agriculture. These proposals consisted of the following: Montana People's Action (1) Institute a moratorium on farm foreclosures. (2) Require mandatory mediation of farm foreclosures. (3) Establish minimum pricing for all Montana agricultural commodities. Northern Plains Resource Council (1) Impose a limited moratorium on farm foreclosures. (2) Provide farm debt mediation. (3) Make loan restructuring or refinancing available to troubled agricultural borrowers. 73 (4) Allow partial redemption of foreclosed farmland. (5) Provide emergency food, clothing, shelter, and counseling for needy farm families. (6) Create a supplier's first lien on agricultural property. Agricultural Preference Coalition (1) Invest 25% of coal tax trust funds in Montana agriculture, with a preference for investments in family farm operations. Montana Farm Counseling and Advocacy Coalition (1) Appropriate $110,000 to fund the activities of the Montana Farm Counseling and Advocacy Coalition. Representative Bill Glaser, House District 98 (Billings) (1) Provide for counseling and reeducation of dislocated farmers. (2) Urge Congress and the President not to impose an oil import tax because of the effect such tax would have on Montana agricultural producers. Buck O'Brien, Democratic Candidate for Congress (1) Use coal tax revenues to make agricultural credit available to farmers. n (2) Fund programs to forestall immediate foreclosures, such as a debt mediation program. (3) Provide programs to assist farmers in dealing with emotional and legal stress. The Subcommittee took no action at this meeting on any of these proposals. Third Meeting ->; The third meeting was held on February 21, 1986, in Great Falls. The Subcommittee began this meeting by formally approving a revised study plan for HJR 57 that included the following study issues: A. Farm Finance (1) Should the state develop a debt restructuring program to help agricultural producers achieve a more manageable debt load? (2) Should the state establish an agricultural • credit program to help hard-pressed farmers and ranchers obtain short-term credit to meet immediate needs for operating capital? (E.g., direct loan program, interest rate buydown program, linked deposit program, guaranteed loan program) 75 B. Farm Failures (1) Should the state adopt a moratorium on farm foreclosures or on the sale of property following a foreclosure? (2) Should the state enact legislation to delay farm foreclosures for a defined period during which a state negotiating board could work with lenders to keep farmers and ranchers from defaulting? C. Social Needs of Financially Distressed Farmers (1) Should the state help in providing financial counseling and legal advocacy to farmers and ranchers experiencing financial difficulties? (2) Should the state assist in providing for the mental health and emotional needs of farmers and ranchers who are under serious financial stress? (3) Should the state institute a program to retrain producers to work in other industries? (4) Should the state provide relocation assistance to displaced farmers and ranchers? D. Agricultural Research (1) Should the state redirect university agricultural research to the primary purposes of increasing net farm income, reducing the 76 capital requirements of farming, and promoting agricultural resource stewardship? (2) How can state agricultural research help farmers and ranchers reduce or control the costs of agricultural production? (3) Is more research needed in the development of drought-resistant crop varieties? E. Agricultural Marketing (1) How can the state assist in the marketing of agricultural commodities produced in the state? (2) Should the state act to preserve the quality and identity of Montana grain produced for export? (3) What can the state do to enhance the value of its agricultural products or to improve the processing of products so they are more desirable, economical, or convenient for consumers? F, Structure of Agriculture (1) What can Montana do to preserve the family farm as the primary system of agriculture in the state? (2) Should the state enact measures to discourage the ownership of land for investment or tax writeoff purposes? 77 (3) Should the state restrict the amount of farm losses that can be deducted from nonfarm income for income tax purposes? Following adoption of the study plan, the Subcommittee opened hearings on agricultural research and on problems relating to the quality of Montana grain. Hearing on Agricultural Research The Subcommittee commenced hearings with testimony from Dr. James Welch, Director, Montana Agricultural Experiment Station, Montana State University; Dr. Leroy Luft, Associate Director, Cooperative Extension Service, Montana State University; and Dr. Bill Tietz, President, Montana State University. Each speaker provided information on current state research programs and generally defended research activities. In his testimony. Dr. Tietz told the Subcommittee that the University System is very much attuned to the problems and needs of Montana agriculture. The Subcommittee then heard from Al Kurki and Dave Oien, representing the Alternative Energy Resources Organization, who spoke on the need to refocus state agricultural research to better meet the needs of Montana farmers and ranchers. Dave Oien criticized the current emphasis of Montana agricultural research, which, he said, is to increase the level of farm production. Mr. Oien stated that increasing the level of production has led to increased dependence on fossil fuels, increased use of pesticides and chemical fertilizers, increased capital requirements, increased f^ production costs, and greater farm debt. He said that the state should encourage research that reduces the dependence on limited resources (fuel, fertilizers, etc.) and that develops production methods utilizing crop rotation, recycling of animal wastes, and other affordable "common sense" farming techniques. Hearing on Grain Quality Problems The hearing on grain problems included testimony from Roy Bjornson, Administrator, Plant Industry Division, Montana Department of Agriculture; Jim Christiansen, Executive Vice President, Montana Wheat Research and Marketing Committee; and Representative Bill Glaser, House District 98 (Billings). Roy Bjornson told the Subcommittee that the Montana Department of Agriculture supports the need for U.S. grain standards and a national system for the inspection, grading, and marketing of grain. He further said that the Department strives to promote and protect the quality of Montana grain through the uniform application of U.S. standards. In his testimony, Jim Christiansen explained that Montana does, in fact, have a problem with "dirty wheat", but that this problem is a national issue. Mr. Christiansen said that the problem arises from inadequate federal grain standards, which need to be improved to more accurately reflect the demands of foreign buyers. Mr. Christiansen concluded that in addressing the problem, Montana could not act alone, such as by imposing a state grain standard. He said if the state imposed its own standard for the grading of grain, the state would: (1) be overruled by the Federal 79 Grain Inspection Service; or (2) make Montana a residual supplier of grain because the export trade would deal first with states that are easier to do business with. Representative Glaser spoke on the need to develop a state system that would allow the marketing of identity-preserved, quality Montana grain. He proposed establishment of a voluntary grain standard for the grading of Montana grain. Representative Glaser also suggested that the state cooperate with neighboring states to assure the quality of Montana grain shipped to export locations. , During this hearing, the Subcommittee also heard two staff reports. One report provided background information on current problems experienced in marketing grain under the federal grain standards. The second report addressed questions concerning federal limitations on the power of the state to adopt standards for the grading of grain produced in Montana. This report concluded that both the Commerce Clause of the U.S. Constitution and the Federal Grain Standards Act would preclude the State of Montana from adopting mandatory grain standards other than the official federal grain standards; however, the establishment of some nonregulatory or voluntary standard would be permissible under certain exceptions provided by federal law. > Special Session Legislation At the close of these hearings, the Subcommittee discussed whether the Governor would include agricultural issues in his call for a Special Session of the Legislature, which was scheduled to be held in 80 March. Determining that the Governor might welcome legislation to address the financial problems of Montana farmers, the Subcommittee considered and then adopted four bills proposed by Senator Neuman. These bills are summarized below as follows: (1) A bill to establish a state linked deposit program, whereby the state would use public investment funds to purchase certificates of deposit at a discounted rate from participating banks, who would then be required to make agricultural loans available to borrowers at favorable interest rates. (2) A bill to provide financial and farm management counseling, debt mediation, legal services, and mental health assistance for the state's financially distressed farmers. (3) A resolution to urge the U.S. Secretary of Agriculture to make advance CCC loan payments available to Montana farmers, as authorized under provisions of the 1985 Farm Bill, thereby making available money for the 1986 planting season. (4) A resolution asking the U.S. Congress not to propose or approve any additional tax on imported oil because of the impact such tax would have upon Montana agricultural producers. 81 After adopting these bills, the Subcommittee instructed the staff to draft a letter to the Governor requesting that he ask a Special Session of the Legislature to consider legislation to assist the state's financially troubled agricultural industry. Fourth Meeting The fourth meeting of the Subcommittee was held on March 12, 1986, via telephone conference call. The purpose of the meeting was to discuss and approve details of two bills requested at the last meeting — the state linked deposit bill and the bill to provide farm counseling and assistance to financially distressed farmers. Discussion of these bills was led by Senator Neuman. During this discussion, questions were raised concerning the discounted interest rate that would be offered to lenders as an incentive to participate in the linked deposit program. Questions were also raised on the proposed 6-month limitation on linked deposit loans. Some members expressed the belief that the loans should be extended for at least one full year. Discussion of the proposed farm counseling bill also led to a number of questions. These questions dealt mainly with the structure, design, and funding of the proposed farm counseling and assistance program. 82 Following this discussion, the Subcommittee approved key provisions of both bills and requested final bill drafts. The Subcommittee also agreed to meet again prior to the Special Session to finalize its proposed legislation. Fifth Meeting The Subcommittee held its fifth meeting on March 21, 1986, in Helena. The purpose of this meeting was to consider final drafts of legislation the Subcommittee planned to introduce in the Special Session that was scheduled to convene on March 24. At this meeting, the Subcommittee gave final approval to bills it had requested at previous meetings. The Subcommittee also considered and approved two additional bills, which were requested by Senator Gait and Representative Asay. The Subcommittee recommended the following bills, which were introduced and approved during the Special Session held in March 1986: SB 7 An act creating an agricultural production (LC 31) loan linked deposit program; authorizing the Board of Investments to place up to $50,000,000 of public investment funds in certificates of deposit with participating lending institutions at an interest rate 1 percent below the current market rate; and requiring each institution to lend the value of such deposits to eligible agricultural operations at an interest rate not exceeding 2 83 percentage points greater than the rate payable on the certificates of deposit. SB 9 An act to provide funding to enable the (LC 42) Department of Natural Resources and Conservation to issue additional general obligation water development bonds; and amending sections 85-1-603, 85-1-604, and 85-1-617, MCA. HB 10 An act appropriating money to replace the (LC 30) potential earnings lost to investment funds used to purchase discounted certificates of deposit under the agricultural production loan linked deposit program. HB 11 An act establishing an agricultural assis- (LC 7) tance and counseling program to aid financially distressed farmers; providing for financial counseling, farm management training, legal services, voluntary debt mediation, mental health assistance, support counseling, and referral services; authorizing the Department of Agriculture to administer the program; and appropriating funds. SJR 2 A joint resolution of the Senate and the (LC 8) House of Representatives of the State of Montana urging the United States Secretary of Agriculture to make advance Commodity Credit Corporation (CCC) recourse loans available to Montana agricultural producers, as authorized under provisions of the Food Security Act of 84 1985, thereby ensuring that adequate operating credit is available for planting of the 1986 crop. HJR 2 A joint resolution of the Senate and the (LC 34) House of Representatives of the State of Montana urging that the United States Congress enact temporary legislation to aid agricultural borrowers and lenders during the current financial crisis in Montana agriculture and requesting Congress to expand the Farmers Home Administration loan guarantee and interest rate buydown programs, to preserve the Small Business Administration guaranteed loan program for businesses in rural farm communities, and to create a secondary market for farm real estate to stabilize land values. HJR 3 A joint resolution of the Senate and the (LC 9) House of Representatives of the State of Montana requesting the United States Congress not to impose an excise tax on imported crude oil because of the serious financial impact siich tax would have upon agriculture in Montana. Sixth Meeting The sixth meeting was held on May 10, 1986, in Kalispell. At this meeting, the Subcommittee considered two proposed bills, which are listed below as follows: 85 LC 11 An act establishing a 100% Montana limited blended grain marketing program; authorizing the Department of Agriculture to administer the program; and granting rulemaking authority. LC 12 An act limiting the amount of farm losses that may be allowed as a deduction against nonfarm income in computing adjusted gross income for Montana individual income tax purposes; amending sections 15-30-101, 15-30-111, 15-30-117, and 15-30-131, MCA; and providing a retroactive applicability date. Hearing on Limiting Farm Loss Deductions , The meeting began with presentation of LC 12 by Representative Holliday. Representative Holliday opened by stating that she requested the bill to address the problem of tax-shelter farming in eastern Montana. She explained that tax-shelter farming has led to sodbusting and other abuses, including speculation in farmland. In support of LC 12, Representative Holliday submitted a report she requested from the Montana Department of Revenue. This report explained that tax-shelter farming is a situation in which a firm that otherwise would not be engaged in farming engages in farming for the purpose of sheltering nonfarm income from taxes. Through the tax shelter, the farming operation provides deductions, which decrease the amount of income subject to tax, and tax credits, which directly offset tax liabilities. The situation also provides opportunities to convert ordinary income into capital gains, which are taxed at much lower rates than ordinary income. The report explained that the use of farming operations for 86 tax shelter purposes is made more attractive by the special treatment given to farms under the tax laws. This includes more freedom in the use of the cash method of accounting and the direct expensing of items that would be depreciated over a period of years in a nonfarm business. At the close of her remarks. Representative Holliday stated that LC 12 would generate $4.4 million in additional tax collections, based upon a proposed graduated cap on farm losses similar to one established in the state of Wisconsin. In its consideration of LC 12, the Subcommittee heard testimony from concerned citizens, which included the following: (1) Dr. Myles Watts, Chairman, Department of Agricultural Economics and Economics, Montana State University, outlined the tax benefits for investors who do not plan to retain ownership of land converted for use in farming. He concluded that the tax laws have a direct impact on the investment strategies of individuals who realize the advantages of investing in farming operations. Dr. Watts said that the federal tax provisions, which have been adopted by the state, encourage external investors to become more involved in agriculture. (2) Randy Johnson, Montana Grain Growers Association, stated that the bill could adversely affect a great number of people in agriculture: (1) the farmer who has had «7 financial difficulties and is now trying to sell his farm; (2) the producer who has managed a profitable operation and is making substantial nonfarm income from investments; and (3) the producer who relies on income from off-farm employment in order to make farming possible. (3) Gene Chapel, Montana Farm Bureau, testified that he opposed the bill because it would penalize farm families in which a spouse is required to work off the farm. Testimony on LC 12 was followed by discussion of the bill by the Subcommittee. Concerns were raised regarding the impact of the proposed tax policy. In addition, there were questions about the effect of federal tax reform legislation on tax-shelter farming. The Subcommittee concluded its consideration of LC 12 by agreeing that there was no reason for haste in regard to the bill and that further study would be necessary before final consideration could be given to such legislation. Hearing on Grain Marketing Improvement Following consideration of LC 12, the Subcommittee took up LC 11, which was presented by Representative Bill Glaser. Representative Glaser explained that LC 11 would establish a program for marketing of a quality-preserved, premium Montana grain. He said such program was necessary because the quality of U.S. grain, including Montana grain, had come under increased criticism due to the amount of blending permitted under the federal grain standards. He said that the standards 88 allow dockage, water, and foreign material to be mixed with grain, and LC 11 would prohibit this practice if the grain is marketed under the proposed marketing program. After presentation of the bill, the Subcommittee heard testimony from Jim Jenks, Montana Wheat Research and Marketing Committee; Randy Johnson, Montana Grain Growers Association; and Gene Chapel, Montana Farm Bureau. All three spokesmen testified in general opposition to LC 11. Jim Jenks questioned whether the benefits of the proposed program would be an improvement compared to the benefits of marketing conducted by U.S. Wheat Associates and the Montana Wheat Research and Marketing Committee. He further questioned the cost of identity-preserving Montana grain. Gene Chapel told the Subcommittee that the bill concerned him because it would limit the purchase of Montana grain for blending purposes. He said Montana sells a blending grain — grain that has value because it can be mixed with other grain around the world to improve gluten strength and protein content. He said LC 11 might isolate Montana grain from the market. Randy Johnson indicated hesitation to speak in opposition to LC 11. However, he said, the current U.S. marketing system is the best in the world and there is no problem in monitoring the quality of grain shipped within that system. The Subcommittee took all testimony under advisement. 89 Seventh Meeting The Subcommittee held its seventh meeting on June 23, 1986, in Helena during the Special Session that convened June 16. The main purpose of this meeting was to receive further testimony concerning LC 11, a bill to establish a 100% Montana limited blended grain marketing program. At this meeting, amendments were accepted to LC 11. These amendments added enforcement and penalty provisions to the bill. Under the enforcement provisions, the Department of Agriculture could investigate grain marketing and handling practices to ensure that grain described as 100% Montana limited blended grain met the legal requirements for such grain. In addition, for purposes of inspection, the Department of Agriculture would have reasonable and necessary access to all buildings, yards, warehouses, storage facilities, containers, railroad cars, and any other place in which grain is kept, stored, handled, or transported. During this meeting, the Subcommittee also heard a report from the Montana Department of Agriculture concerning its implementation of HB 11, the farm counseling bill, and SB 7, the linked deposit bill. Following presentation of these reports, the Subcommittee heard comments from Montana People's Action and the Montana Farm Counseling and Advocacy Coalition. These comments concerned objections to the Department's plan for peer counseling services. In response to this 90 testimony, the Subconunittee asked the staff to review the Department's proposed plans for administration of the Agricultural Assistance and Counseling Program. Eighth Meeting The Subcommittee held its eighth meeting in Billings on September 19, 1986. At this meeting, the Subcommittee gave further consideration to LC 11, the grain marketing bill. In addition, the Subcommittee discussed a committee working paper that outlined various options for new policies and programs to address the state's agricultural problems. These options included the following: (1) Amend state banking regulations to allow prudently managed banks to amortize loan losses on a multiple year basis as a means of enabling banks to preserve their capital and to maintain their capacity to extend credit to agricultural borrowers (requested by Senator Neuman) . (2) Permit banks to hold, for a longer period of time, real estate assets acquired through foreclosure, in order to preserve real estate values and to allow banks to stabilize their capital (requested by Senator Neuman). (3) Revamp the Montana Beginning Farm Loan Program to make it a viable program to assist beginning farmers and ranchers in obtaining n loans for the purchase of agricultural land and property (requested by Representative Holliday) . (4) Authorize creation of a marketing division in the Montana Department of Agriculture, which would promote Montana agricultural products in both foreign and domestic markets, and assist producers and marketers in dealing with potential buyers, trade representatives, and government agencies (requested by Representative Asay). (5) Redirect university agricultural research to the primary purposes of: (a) increasing net farm income; (b) reducing the overall production costs of farming; (c) promoting sound agricultural resource management; (d) expanding demand for farm products; and (e) developing new agricultural markets (requested by Representatives Rapp-Svrcek and Marks) . (6) Require the Montana Agricultural Experiment Station to accelerate research on the development of a sawfly resistant, solid stem wheat and to make wheat research a top program priority (requested by Senator Kolstad) . (7) Provide for a state hunting/recreational fee access program as a means of: (a) allowing farmers to earn additional farm income by providing them an alternative use for their land; (b) controlling game damage on 93 agricultural lands; and (c) promoting landowner satisfaction for contributing to wildlife habitat (requested by Representative Asay) . The following major testimony was heard: Amortization of Loan Losses (1) Senator Neuman testified that state banking laws should be amended to permit a longer period in which banks could hold foreclosed farmland. He said, under current law, banks must sell foreclosed property within five years after acquiring it. He said greater flexibility is needed to ease the transition out of the current agricultural depression. (2) Tom Tully, Northern Plains Resource Council, told the Subcommittee that his organization could see no advantage for allowing banks to hold foreclosed land for a longer period of time. He said that Senator Neuman 's proposal might increase the number of farm foreclosures because of the increased latitude given to banks in holding land for a longer period. (3) Kay Blehm, representing herself, expressed concern that the proposed measure would make it more difficult for a young farmer to enter agriculture because farmland values would be stabilized at current high levels. ^ Montana Beginning Farm Loan Program (1) Paul Ringling, Chairman, Montana Agricultural Loan Authority, presented a paper prepared by E. F. Hutton describing two taxable agricultural loan financing techniques that could be explored as an alternative means of funding the state Beginning Farm Loan Program. The alternative financing involved the sale of bonds backed by either FmHA loan guarantees or FSLIC/FDIC lender deposit insurance. Mr. Ringling explained the need for state agricultural financing. He said with adequate bonding authority, the Montana Agricultural Loan Authority could administer a better loan program for beginning farmers and also provide an adequate loan guarantee program to help existing agricultural producers. (2) Keith Kelly, Director, Montana Department of Agriculture, testified that the Beginning Farm Loan Program was not a functioning program. He suggested that authorization for the program be left in the statutes even though no loans were being issued. Agricultural Marketing Program (1) Keith Kelly, Director, Montana Department of Agriculture, described a proposed agricultural marketing program that would be administered by the Montana Department of Agriculture. He told the Subcommittee that government bodies, such as the Governor's Council on Economic 94 Development, have recommended that more emphasis be placed on developing a Montana agricultural marketing program. Mr. Kelly explained that the proposed marketing program would provide market research and other assistance to Montana producers and marketers in identifying and developing markets for their products. (2) Ross Fitzgerald, Montana Grain Growers Association, said his organization would view with caution any marketing activity that would interrupt the marketing function of the U.S. Wheat Associates, the Feed Grains Council, and the Northern Crops Institute. He also questioned the role of the state in marketing agricultural commodities. Agricultural Research (1) Dr. Myles Watts, Chairman, Department of Agricultural Economics and Economics, Montana State University, presented a paper in which he discussed the impact of technology on farmer income. Dr. Watts explained the need to differentiate between general and specific types of technological advancement. He said, given current knowledge of the supply and demand curves in agriculture, researchers 3.0 ! hypothesize that much agricultural research which results in general technological advancement eventually decreases producer income. On the other hand, according to Dr. Watts, specific technological advancement resulting from agricultural research will tend »S to produce economic benefits for a minority of producers without depressing farm income in the aggregate. Dr. Watts concluded that, from Montana's perspective, it is important to encourage research that would result in specific technological advancement. Furthermore, he said, if Montana producers are to prosper, there must be technological advancement in order to remain competitive since it is highly unlikely that other areas in the U.S. or the world will stand technologically still. (2) Dan Maclntyre, Musselshell Agricultural Alliance, commended the Subcommittee for the attention given to agricultural research issues. He urged the Subcommittee to reevaluate and review the priorities of state research efforts. ': " , "-) I' -I r- ij. (3) Tom Tully, Northern Plains Resource C6ilricil, voiced his organization's concern about the high-tech, capital intensive research program historically advocated by Montana State University. He said that state agricultural research has resulted in greater production capabilities, which in turn have led to greater overproduction and surpluses. Mr. Tully expressed the view that university research needed to concentrate on the cost of adopting expensive technologies. (4) Dr. James Welsh, Director, Montana Agricultural Experiment Station, Montana State University, submitted written testimony 9«g explaining that the Montana Agricultural Experiment Station Advisory Council examined Subcommittee concerns and adjusted research activities to place more emphasis in the areas of concern. He also called to the attention of the Subcommittee that budget cuts had harmed current research efforts and that Montana was without a spring wheat breeding program due to the loss of federal support for the program. Wheat Research and Sawfly Damage (1) Allan Taylor, Plant and Soil Science Department, Montana State University, spoke on the current wheat breeding program conducted by the Montana Agricultural Experiment Station. He testified that the wheat breeding program had provided five new hard red winter wheat varieties since 1979 and that researchers will continue to make important contributions to the Montana wheat industry. He said he would prefer that the Subcommittee address the problem of sawfly research from a broader viewpoint as to overall financial support for the university research effort. (2) George Erickson, County Extension Agent, Chouteau County, described the severity of sawfly damage in the wheat belt. He said sawfly damage has affected between 5% and 20% of the crop in several counties, including his own. He said that researchers needed to develop a solid stem winter wheat of an early 97 maturing variety in order to prevent further devastation to farmers. The meeting ended with agreement that legislation would be considered at the next meeting concerning the options discussed at this meeting. Ninth Meeting The final meeting of the Subcommittee was held on December 5, 1986. At this meeting, the Subcommittee received eight bills that were requested for possible recommendation to the 1987 Legislature. These bills were developed based upon the issues presented at the September 19 meeting, as well as issues examined by the Subcommittee earlier in the interim. Based upon its consideration of these bills, the Subcommittee recommended the following legislation: LC 11 An act establishing a 100% Montana limited (HB 40) blended grain marketing program; authorizing the Department of Agriculture to administer the program; and granting rulemaking authority. (Adopted by majority vote: 5-1.) LC 476 An act amending section 32-1-423, MCA, to (SB 59) allow state-chartered banks to hold agricultural real estate for 15 years following acquisition by foreclosure or conveyance in satisfaction of debt. (Adopted by majority vote: 5-1.) 98 LC 477 An act to revise and continue the (SB 46) agricultural loan linked deposit program; and amending sections 17-6-103 and 80-14-102, MCA, and section 9, Chapter 5, Special Laws of March 1986. (Adopted unanimously.) LC 478 An act appropriating money to replace the (HB 275) potential earnings lost to investment funds used to purchase discounted certificates of deposit under the agricultural production loan linked deposit program. (Adopted unanimously.) LC 479 An act providing for temporary continuation (HB 71) of the agricultural assistance and counseling program; amending section 15, Chapter 9, Special Laws of March 1986; and appropriating funds. (Adopted unanimously.) The Subcommittee considered but could make no recommendation concerning the following bill: ■ I : J HB 86 An act establishing a Montana agricultural (LC 526) marketing program; authorizing the Department of Agriculture to administer the program; and appropriating funds. (Failed on a tie vote, 3-3.) The following bills were considered and killed on a motion to table each bill: LC AG 3 An act to permit amortization by banks of certain agricultural loan losses; and amending section 32-1-454, MCA. 99 LC AGS An act to require the Montana Agricultural Experiment Station to accelerate research on the development of a sawfly resistant winter wheat; to mandate the establishment of a spring wheat breeding program; and to allocate funds for agricultural research. The Subcommittee received the following testimony in connection with these bills: Grain Marketing (LC 11) Representative Bill Glaser, House District 98 (Billings), stated that LC 11 would establish a voluntary marketing program for grain. Under the program, the Montana Department of Agriculture would assist farmers, agricultural cooperatives, and commodity dealers in the transportation, handling, and marketing of a quality-preserved Montana grain. Representative Glaser said any person who wished to participate in the program must agree to provide grain that meets these requirements: (1) The grain must be produced and harvested in Montana. (2) The grain must not be blended or intermingled with grain of a different type, contrasting origin, or lower quality. (3) No dockage, water, or foreign material may be added or knowingly introduced to the grain. 100 (4) No blending of grain with similar grain of different moisture content could be permitted, V -''^J. i (5) The grain must meet such other specifications for quality as may be agreed by the buyer and the producer. Representative Glaser concluded his testimony by saying that LC 11 would provide a vehicle for producers to market a unique grain, *^ '-' Randy Johnson, Montana Grain Growers Association, spoke in opposition to the bill. He said the bill was unnecessary because the current grain marketing system was adequate. Mr. Johnson further stated that the payment of premiums provided a mechanism to assure that a buyer received a desired product. Holding of Foreclosed Land by Banks (LC 476) Senator Neuman explained the purpose of LC 476, which would allow state-chartered banks to delay liquidation of foreclosed agricultural land for up to 10 years following its acquisition. He said LC 476 could potentially help stabilize the value of farmland at a time when a great deal of land is coming on the market due to foreclosures. Chris Olson, Financial Division, Montana Department of Commerce, testified that state banking regulators presently had the option to extend the period in which banks could hold foreclosed property. John Cadby, Montana Bankers Association, stated his organization's support for the bill. He said, while 101 state banking regulators had the option to allow banks to retain foreclosed property for a longer period, the problem was that the decision rested with the regulators and not with the banks. Mr. Cadby ended his testimony with a suggestion that LC 476 be amended to allow banks to hold foreclosed property for 15 years and that the bill apply retroactively to current foreclosed land. Jack Heyneman, Northern Plains Resource Council, expressed the concern that LC 476 would encourage bank speculation in real estate. Continuation of State Linked Deposit Program (LC 477 and LC 478) Senator Neuman presented LC 477, which would extend authorization for the agricultural loan linked deposit program. Senator Neuman indicated that the bill would make several key revisions to the program, which was initiated during the March 1986 Special Session. These revisions included: (1) The term for linked deposit loans would be increased from six months to one year. (2) Participating financial institutions would be allowed to write linked deposit loans at an interest rate of 3 percentage points greater than the rate payable to the state, rather than at 2% as provided under the existing law. (3) The loan obligation itself could be used to satisfy the financial pledging requirement governing security for state investments. 102 Keith Kelly, Director, Montana Department of Agriculture, urged continuation of the state linked deposit program and submitted information concerning current operation of the program. John Cadby, Montana Bankers Association, testified that LC 477 would provide greater incentives for banks to participate in the state program. Mr. Cadby also expressed concern that the $1 million appropriation contained in LC 478 would result in some controversy. Continuation of the Agricultural Assistance and Counseling Program (LC 479) Keith Kelly, Director, Montana Department of Agriculture, reported on current program activity to assist financially distressed farmers. He urged support for LC 479. John Cadby, Montana Bankers Association, testified that his organization supported the voluntary mediation feature of the Montana Agricultural Assistance and Counseling Program. He stated that the Montana Bankers Association would oppose mandatory mediation. Kay Blehm, Northern Plains Resource Council, spoke in support of financial counseling services, but indicated that her organization would request the right to farm debt mediation. Jim Fleischmann, Montana People's Action, said that voluntary mediation had not worked well in Montana and that his organization would seek legislation to provide the right to mediation. 103 Randy Johnson, Montana Grain Growers Association, said that his farm organization opposed a mandatory right to mediation. He said his organization was concerned that mandatory mediation would dry up the availability of farm credit in Montana. Agricultural Marketing (LC 526) Representative Asay explained that LC 526 was intended as a means of improving current marketing efforts. He said, without such improvement in the state's marketing efforts, Montana's share of agricultural markets would be eroded by other states and foreign nations who are aggressively marketing their products to expand their market share. Representative Asay stated that it was not his intent to have the state government control agricultural marketing in Montana. Instead, he said, the role of state government was to assist Montana producers and marketers in developing and carrying out effective marketing for their commodities. In addition, state government would help coordinate marketing efforts among the various agencies and farm groups engaged in «*^ marketing activity. ^■'■' ■^Miy Randy Johnson, Montana Grain Growers Association, opposed the bill, stating that his organization feared meddling and regulation by the state, f ^ *t: : - t * • ' Bud Leuthold, speaking for himself, questioned the need for such legislation, expressing the belief that private organizations and others are effectively promoting the sale of Montana agricultural commodities, especially wheat. I 104 Keith Kelly, Director, Montana Department of Agriculture, offered the comment that, in the executive budget, the Governor has proposed establishment of a marketing office in the Pacific Rim so that Montana can build a stronger identity for its products. Amortization of Bank Loan Losses (LC AG3) Senator Neuman presented LC AG3, which he explained would allow banks to write off agricultural loan losses over a period of 15 years rather than immediately upon recognition of such losses. Senator Neuman said the purpose of the bill was to stabilize bank capital. John Cadby, Montana Bankers Association, testified that South Dakota recently enacted a similar bill; however, the law has had no practical effect in South Dakota because federal banking regulators refuse to recognize the newly enacted law. Nonetheless, Mr. Cadby said, there is a need for greater flexibility in banking regulations to prevent bank capital from being eroded by requirements that banks offset problem farm loan assets. He suggested that states pressure federal regulators to modify current banking restrictions. Wheat Research (LC AG6) Dr. James Welsh, Director, Montana Agricultural Experiment Station, Montana State University, testified that there will be seed available in 2-3 years which will produce a sawfly resistant wheat and that Montana wheat researchers will place increased emphasis on research to control sawfly damage. 105 Dr. Welsh further testified that a major problem in the state's wheat research program is the lack of a spring wheat breeding program. He said such program would require funding of between $125,000 and $150,000 per year. Randy Johnson, Montana Grain Growers Association, urged greater financial support for the Montana Agricultural Experiment Station. He also stated that the Montana Grain Growers Association did not welcome legislative action to direct state agricultural research activities. .;tt .-^•J ^ ' \i M}*^' Additional information on the work of the Subcommittee is available from the Montana Legislative Council, Room 140, State Capitol, Helena, Montana 59620. 106 REFERENCE NOTES Part I. "The Economic Problems of Agriculture in Montana" •^ This description of the farm problem is based upon an analysis reported by the United States Department of Agriculture. See U.S. Department of Agriculture, The Current Financial Condition of Farmers and Farm Lenders, Agriculture Information Bulletin No. 490 (Washington, D.C.: March 1985). 7 . ... ^ Montana Agricultural Statistics Service, Montana Agricultural Statistics, Vol. XXIII (October 1986), p. 12; Montana Crop and Livestock Reporter (March 12, 1987) . ^ Montana Agricultural Statistics (October 1986), p. 80. ^ Ibid. ^ Prices reported are season average prices for each marketing year. See Montana Agricultural Statistics Service, Montana Agricultural Facts; 1986 (May 1987). ^ Ibid. ^ Montana Agricultural Facts; 1986. ° Montana Agricultural Statistics (October 1986), p. 15. ^ Ibid. ^" Montana Department of Agriculture, Montana Crop and Livestock Reporting Service, Montana 1985 Farm Finance Report (February 1986). 11 Ibid. 1^ Montana 1985 Farm Finance Report. 107 ■^■^ Letter of Fred Flanders, Commissioner of Financial Institutions, Montana Department of Commerce, dated April 20, 1987. This is based upon information reported by Sheshunoff and Company, Inc., which compiled data from the Federal Reserve Bank Board. ^^ Letter of Fred Flanders. This conclusion is drawn from data showing the amount of agricultural loans as a percent of bank total assets. Part II. "Policy and Program Options" Montana Department of Agriculture, Montana Crop and Livestock Reporting Service, Montana 1985 Farm Finance Report (February 1986), Supplemental. ^ See Minn. Stat. § 583.20 through 583.32, and House File 2473, 1986 Iowa Legis. Serv. ^ Reported in Elizabeth Curry Williams, "Farmers and Creditors Meet in the Middle," Farm Journal (September 1986), p. 29. The information reported here was obtained primarily through an informal telephone survey of farm state legislatures and from a review of state statutes. Some of the information, however, is contained in U.S. Department of Agriculture, Cooperative Extension and Agricultural Profitability — Intensive Assistance for Financially Distressed Farmers (November 1985). See Iowa Code § 266.36. See Kan. Stat. § 74-544 through 74-545. ^ See 1985 N.D. Sess. Laws, Ch. 88. See 1985 N.D. Sess. Laws, Ch. 137. Montana 1985 Farm Finance Report. 10 Ibid. 6 Testimony of Senator Ted Neuman to the Joint Interim Subcommittee on Agricultural Problems, March 12, 1986. 108 1 "} Mark G. Popovich, State Emergency Farm Finance: A Review (Washington, D.C.: Council of State Policy and Planning Agencies, January 1986), p. 8. ^3 Ibid., pp. 8-9. ^^ State Emergency Farm Finance, pp. 3, 8. ^^ For a complete description of these state programs, see State Emergency Farm Finance, pp. 29-31, 39-40. See also Mark G. Popovich, State Emergency Farm Finance: Vol. II (Washington, D.C.: Council of State Policy and Planning Agencies, April 1987), pp. 27-30, 39. ^^ See Section 32-1-454, MCA. ^"^ See Section 32-1-502, MCA. 1 ft j-o Telephone conversation with staff of the South Dakota Division of Banking and Finance, Department of Commerce and Regulation, September 1986. ^^ See 1986 S.D. Sess. Laws, Ch. 400. on *" U.S. Department of Agriculture, Agricultural Resources, Outlook and Situation Report (Washington, D.C.: April 1987); Montana Agricultural Statistics Service, Montana Agricultural Statistics: 1983-1984, Vol. XXII (September 1985). 2^ See Colo. Rev. Stat. § 11-8-101. ^^ Reported in Senator Rodney Moen, "Midwest Tests New Policies," State Government News (September 1986), p. 12. ^•^ The Montana Beginning Farm Loan Program is established under sections 80-12-101 through 80-12-403, MCA. ^^ Office of the Legislative Auditor, Montana Agricultural Loan Authority, Department of Agriculture, Financial Compliance Audit (December 1985), p. 16. 25 Ibid. 2" Office of the Legislative Auditor, Montana Agricultural Loan Authority, Department of Agriculture, Financial Compliance Audit (September 1986), p. 6. 109 27 Ibid. no ° Montana Agricultural Loan Authority (September 1986), p. 11. 29 Ibid. ^^ See Internal Revenue Code of 1986, § 144(a)(12)(b). ^^ Letter of Keith Kelly, Director, Montana Department of Agriculture, dated December 19, 1986. ■^2 Testimony of Keith Kelly, Director, Montana Department of Agriculture, to the Joint Interim Subcommittee on Agricultural Problems, May 10, 1986. ^^ Montana 1985 Farm Finance Report. ^^ For a detailed description of this problem, see Dale McDonald, "Why the World Doesn't Want Our Grain," Farm Journal (October 1985), pp. 13-17. See also "Giving Foreign Buyers What They Want: Cleaner U.S. Wheat," Farmline (August 1986), pp. 4-7. For an m-depth account of buyer dissatisfaction, see "U.S. Wheat Quality — The Buyer's View," Proceedings of the International Grains Program, Manhattan, Kansas, August 3, 1984. (Mimeographed.) ^^ See, e.g., 7 C.F.R. § 810.305 (1986). ^^ See, e.g., 7 C.F.R. § 810.302 (1986). ^^ See 7 C.F.R. § 810.306 (1986). 3Q Testimony of Jim Christiansen, Executive Vice President, Montana Wheat Research and Marketing Committee, to the Joint Interim Subcommittee on Agricultural Problems, February 21, 1986. ^° Farm Journal (October 1985), p. 16. 41 Ibid. The Federal Grain Inspection Service has disclosed that about one-third of all grain elevators add dust to grain as a standard practice. See U.S. Congress, House Committee on Appropriations, Hearing on Agriculture, Rural Development, and Related Agencies; Appropriations for 1986, 99th Cong., 1st Sess. (1985), p. 510. 110 Joint Interim Subcommittee on Agricultural Problems, "Montana Grain Standards," staff report by Dave Cogley (February 1986). ^^ S.B. 23, Kansas State Legislature, 1985 Session. ^^ L.B. 1216, 89th Nebraska Legislature, 2nd Sess. (1986). ^^ H.R. 4613, 99th Cong., 2nd Sess. (1986). ^"^ See 51 Fed. Reg. 30323. 4R Montana Department of Commerce, The Feasibility of Stimulating Montana Exports Through Transportation Innovation, report prepared for the Maritime Administration, U.S. Department of Transportation (December 1985). ^^ Ibid., p. 214. For a description of marketing activities conducted by the Montana Department of Agriculture, see Memorandum of Stephen Kalgaard, Market Analyst, Montana Department of Agriculture, dated April 17, 1986. ^^ This conclusion also was reached by the Governor. See Office of Governor, An Economic Development Program to Build Montana (January 1983), p. 29. CO ^^ Office of the Legislative Fiscal Analyst, Budget Analysis: 1987 Biennium (January 1985), p. 411. ^•^ See Section 81-8-611, MCA. ^^ Budget Analysis: 1987 Biennium, p. 412. ^^ See Section 80-11-205, MCA. ^" Conversation with Gene Marcille, Montana Department of Commerce, April 1986. ^^ See Section 80-11-102, MCA. ^^ Reported in Charles S. Johnson, "Ag Products Are Called State's Best Export Hope," Great Falls Tribune (November 8, 1985). Ill ^^ William E. Nothdurft, State Innovations in Agricultural Policymaking (Washington, D.C.: Council of State Planning Agencies, 1985), pp. 32-33. 60 61 62 34. 63 State Government News, p. 13. Ibid. State Innovations in Agricultural Policymaking, See Section 15-30-117, MCA. °^ See Montana Department of Revenue, A Report on Tax-Shelter Farming, prepared for the Joint Interim Subcommittee on Agricultural Problems (May 10, 1986), pp. 4, 12. °^ Internal Revenue Code of 1954, § 165, amended by the Tax Reform Act of 1986, Pub. L. No. 99-514, 100 Stat. 1085 (1986). The discussion that follows is based on the law prior to enactment of the Tax Reform Act of 1986. The Tax Reform Act had not been enacted at the time Option #8 was studied. Therefore, some of the discussion presented here may no longer apply. ^^ See Internal Revenue Code of 1954, §§ 62, 165, 172, amended by Pub. L. No. 99-514, 100 Stat. 1085 (1986) . ^^ A Report on Tax-Shelter Farming, p. 7. "° See generally U.S. Congress, Joint Economic Committee, Taxes and Agriculture. Hearings Before the Joint Economic Committee, 98th Cong., 2nd Sess. (1984); U.S. Congress, Joint Economic Committee, The Effects of Federal Income Tax Policy on U.S. Agriculture: A Study Prepared for the Use of the Subcommittee on Agriculture and Transportation, 98th Cong., 2nd Sess. (1984); U.S. Congress, Joint Economic Committee, Tax Policies: Implications for U.S. Agriculture. Hearings Before the Subcommittee on Agriculture and Transportation, 99th Cong., 1st Sess. (1985). ^^ See The Effects of Federal Income Tax Policy on U.S. Agriculture, pp. 18-24. ^^ Ibid. , pp. 5-17. See also A Report on Tax-Shelter Farming, pp. 7-11. ^^ The Effects of Federal Income Tax Policy on U.S. Agriculture, pp. 25-30. 112 ^2 Myles S. Watts, Lloyd D. Bender, and James B. Johnson, Economic Incentives for Converting Rangeland to Cropland (Bozeman, Montana: Montana State University, 1983), p. 18. Ibid. , pp. 15-17. See 1985 Wis. Laws, Act 29. 73 74 "^5 S. 244, 99th Cong., 1st Sess. (1985). ^^ U.S. Congress, Senate, Remarks of Senator Abdnor, Congressional Record (January 22, 1985). ''^ The new tax provisions relating to treatment of passive activity losses are contained in the Internal Revenue Code of 1986, § 469. ^^ This issue was first raised during the budget review process. See Office of the Legislative Fiscal Analyst, Budget Analysis; Special Session III (June 1986), pp. F 38-39. ^^ See Office of the Governor, Executive Branch Policy Development Program, State Agriculture Policy — Providing for the Next Generation (December 1984), pp. 21-33. ^° Reported in Senator Ruben S. Ayala, "Budget Cuts Hurt Agriculture," State Government News (September 1986), p. 15. ^^ Cy Carpenter, "Rural Survival Depends on States," State Government News (September 1986), p. 18. ®^ See, e.g. , U.S. Congress, House Committee on Agriculture, Review of the Report "Extension in the Eighties." Hearings Before the Subcommittee on Department Operations, Research, and Foreign Agriculture, 98th Cong., 1st Sess. (1983). ^^ Office of Management and Budget, Budget of the United States Government; Fiscal Year 1987 (Washington, D.C.; Government Printing Office, 1986). ®^ See Proceedings of Annual Meeting of the American Agricultural Economics Association, published in American Journal of Agricultural Economics, Vol. 68 (December 1986), pp. 1295-1318. 113 °^ This option was treated as part of the study on wildlife damage, which was conducted by the Subconunittee. See Joint Interim Subcommittee on Agricultural Problems, Wildlife Damage to Agriculture: A Report to the 50th Legislature (December 1986). °° For a discussion of possible private revenue and other benefits that could be gained from alternative uses of farmland, see Gordon Meeks, Jr., "Potential ' Private Revenue and Public Benefits from Alternative Agriculture," State Legislative Report, No. 4 (April 1986). ft 7 °' Ibid. , p. 5. See also Joint Interim Subcommittee on Agricultural Problems, "Legal Considerations of Block Hunting on Private Property for a Fee," staff report by Greg Petesch (September 1986). ^^ T. J. Gilles, "New Farm Plan Might Idle 3 | Million Montana Acres," Great Falls Tribune / (October 20, 1985). \ QQ °^ "Potential Private Revenue and Public Benefits from Alternative Agriculture," pp. 9-10. Qn . Joint Interim Subcommittee on Agricultural Problems, "Wildlife Damage Laws and Policies of Western States and Canadian Provinces," staff report by Andrea Merrill (April 1986). 114 APPENDIX A LEGISLATION RECOMMENDED TO THE 50TH LEGISLATURE m u e I « w a ; i 1 N ■o > o c ■o o 41 .-. 41 u u o CP 01 •a n •h ■O e c >< 4) •■4 1 •-4 lU •o c 10 e <« •-^ c •H u 0 0 U 4J 4) <0 O u 4J CT> U ^ w u « A o> 0 0) P-* ■o ■o U 01 -H « it -o £ o> 4J Ifl a ■o ■o 41 u c 10 3 c c 4J 3 •H 4J ki 01 M 0 01 ^H B 10 tw J3 ^ 4^ u u T» o rH O a> 41 a >i ■D 01 lU 4J -o in 01 a 10 >• ■-4 u E 4J « 3 u 3 Id c 0 tr ■ -4 0" £ £ 01 <0 £ o 3 01 4j 0) 'M 4J in o O" u •^ *J c *-« OJ 3 >H • H 0 0) u w ^ ^^ z 01 1 u ■o 01 ■u 0 c 2 V *J J< 0< £ 0 e £ w « ki 01 in u ■u 0 a ^ 1 e ■u ■u c ta *j c 10 2 T3 c k4 u •«4 01 £ a C <« 0 0 e ■U 4J 10 u ■U 4J b *J ■u ■D 10 u c 5 % c 0) £ <0 ■-4 a a u 01 ^ u a 4J u — •» u * w Wi ^«> u 10 0) 01 o< C u 0) ■o c u 01 a c •H 0 -^ r~i ■0 ■o 01 10 10 jj VO f~* u c c u ■u (0 ^-- 10 o< 3 ■I-* M •'H «! u 4J c c 1 V •* 01 0 10 OJ OJ u ^ ij o ■o »-4 1*4 o< E s 4J u 10 o 0) c •^ 4J c 4J 4J ■ »4 l-t 4J 3 4J • • 4J k4 u C 4J 14 a> C C r- 01 4J ^ s. > ■H 10 3 01 a 0 c c a •^ E > PH OJ 0 4-1 £ h4 0 fc 4J 0. •u e u u o • #4 c OJ 04 ^ 3 —4 o< •H • OJ OJ 4J o> k4 10 c »-* 3 U) 0 0 £ 4-1 01 10 0 0 U T3 £ cr • JJ u ^ 10 —4 ^ El, £ CT» c C O OJ 3 0 *J u 4-1 ^ •H 10 3 u ^ u-l 4J 01 c o kd OJ k4 £ ul ^ c TJ 0 4J ■»-* 0 0 £ CT> iJ C ta 0 10 10 u^ 01 4J 01 4J 0 c XZ 4J u tn u u "O o "0 3 "4 OJ t] c a> to OJ 0 OJ •o c 01 4^ E 'O 0 T3 > ^i-t a c OJ £ ■o TJ o 01 z OJ k4 "4 10 T3 4J ■u c 01 OJ OJ £ 10 2 -o 4J C c •-4 41 C 01 w (/) c •o 3 OJ c 01 IQ •-4 3 ^^ ■ rt o» 1) — * ■o c •o —4 OJ £ £ k* 10 ^ 10 01 ■^4 0 o .« >l 01 s OJ tf) •o 3 JJ o > a ■H tn ^ 4J TJ 0 TJ J£ 0) ^^ 0 m •^ 0 a 4J 01 C OJ O C 0) iJ 0 £ > u 10 o 5 0) OJ 4-( 3 OJ T) in cn r-i u a 10 •-4 OJ s ■H u 01 4^ m 01 ■o u 4J w OJ E 0 TJ CO T3 * u in 01 r-i a 10 a OJ OJ TJ c c 01 ■0 3 X h4 ,_« c mi rH £ m ■^ TJ c O a> 3 OJ V 3 o 10 0) O c £ c a> ■0 ■0 10 £ 0 3 4-f w >w •-4 0 0) —4 OJ 41 c b -«4 £ (fl £ o> *J •w »^ u u o <0 o> £ 01 o< t-i o ij 4J T3 3 4J 4.J o c 3 tj 10 $ o c C T3 ■u c c u u 4J ••^ 0 01 •H a 5! 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