Implementation of the Biomass Crop Assistance Program

The purpose of this paper is to provide insight into the strengths and weaknesses of theBiomass Crop Assistance Program (BCAP) as it was implemented according to Sect.9011 of the 2008 Farm Bill and to provide insight into the challenges of increasing theproduction of second-generation bioenergy within the U.S. The purpose of the BCAP isto increase the availability of cellulosic (2nd generation) feedstocks for conversion tobioenergy; the program offers two forms of financial assistance to eligible producers ofsuch feedstocks: 1) establishment and annual payments for establishing new bioenergyfeedstocks within selected project areas and 2) matching payments for existing bioenergyfeedstocks. The first part of the paper discusses the market interactions and impacts tonatural resources and livelihoods associated with increasing bioenergy production withinthe United States. The second part of the paper analyzes the issue network, legislativehistory, and implementation challenges of the BCAP.An extensive literature review was conducted to cover the peer-reviewed literaturerelated to the market interactions and impacts of bioenergy production. The BCAP is thefirst large-scale program to encourage increased production and availability of cellulosicfeedstocks for conversion to bioenergy. Subsequently, analogous programs werereviewed to identify potential impacts to natural resources, such as the global carboncycle, and livelihoods that could arise as a consequence of the BCAP.The issue network and legislative history are intended to aid future policy makers withthe re-authorization of the 2012 Farm Bill and were compiled through interviews withprimary sources at the Farm Service Agency and the Library of Congress’s THOMASsite. The issue network identifies stakeholders with a wide range of interests from boththe public and private sectors. The legislative history shows the political road map takento create the BCAP in the 2008 Farm Bill and should serve as a useful tool for reauthorizingthe program in future Farm Bill’s.The analysis of key provisions in the BCAP Final Rule provides representative examplesof the barriers faced to increasing domestic bioenergy production within the U.S. at thispoint in time. The analysis of program implementation was conducted throughinterviews with primary sources within FSA. Over twenty-four thousand publiccomments were received in response to the Proposed Rule. The public commentsdiscussed numerous issues and several provisions were altered or added to address thecomments. Four issues, vertical integration, additionality, conservation, and disruptingexisting markets, highlighted some of the current challenges the bioenergy industry facesto increasing domestic production.