UNITFD STATES DEPARTMTNT OF AGRIC ' Bureau of Agricultural Pc ice' ECONOMIC ASPFCTS OF PASTU E EN THF LAND-H 1 fIV. OF FL LIB NTS DEPT. By C. L. Holmes, Frincipe.l Agriculture! Fcononiet, In Charge, Division of Fern: Mane ge.nent end C> . DEPOSITORY Address, American Society .f Agron Washington, D. C. , November 22, 1934 Two important factors hcve been responsible for pushing - consider- tion of pastures to the foreground in l-nd-use planning. The first is the surplus crop production which has characterized our agriculture in recent years, and .the second is the conservation of soils :nu other natural resources. The first of these factors beg-.n to rr.ke itself felt in a tangible way in the depression of 1.20 and 1921 and became acute with the present depression, culminating in the Government program to reduce surpluses of the crops in which the problem was most acute, ond to adjust the acreage cf crops and' the nurib-r of livestock and the volume of the output of livestock products into a rational relationship with the existing and potential demand. The second of these factors we have hrd with us for many years, but it has been singulorly overlooked in popular pt- t'ention until the present administration embodied it in its comprehensive pro- gram of conservation end adjustment, These two factors give ample justification for the importance which I pasture question has assumed. The issue, on first consideration, seems rea- sonably clear. We should shift substantial portions cf land from erosive crops to gross, refit the organization cf farms to this adjusted use of faro" land, rnd achieve the double objective of reducing the totsl farm output of crops pnd live- stock to a volume which corresponds to tie demand for their use, and -t the sac time conserve in perpetuity the nature-given agricultural resources. Unfortunately this solution moots with other fcrces which involve serious ( iff iculties ond nekes the apparently ..simple solution much more difficult than it appears upon the surface. One of these forces is the pressure of people >n ft ' land, induced by the largo amount of unemployment in n onagri cultural industries, which has been occasioned by the depression. Not only has there been a stopping of 'the normal flow of population from agriculture tc industry, but th r has d - veioped a back* flow of people from industry to agriculture which constitute. resistance tc the proposed program, the significance of which seems as yet c nly pertly realized. More p eple on the land usually means more intensive use, whereas a greater dominance of* pasture, tends to mean. less intensive use. There is the further factor of the individual' farmer's interest in the propose 1 to place a larger proportion of lend in pasture, rnd of his reaction to this proposal. Whatever the program it must be worked out in the light cf these twe factors, although at the outset, at least, those factors Been "to be 2, in opposition t* the considerations that appear to make more pasture rather than less pasture a rational objective from the point of view cf public policy. Finding the best ultimate plaoe of pastures in the planning for agricul- ture must be worked out through a program thai? will reconcile these two nets of opposing forces. Such reconciliation will re extremely difficult, but there seems no reason for believing that it cannot be madp. In its working cut, both agronomists and economists have an important responsibility. In the following discussion it. is proposed, first, to present information on the place which pasture now holds in American farm economy; second, to dis- cuss ways in whieh the use of pasture is involved in the farmer's problem of the organization and management of his farm; and, third, to pre sent what appears to be the major points relating to pastures in land-use planning. The Place of Pastures inAmerican Farming It will help to place our pasture problems before us to consider some data on the present place of pasture in American farming and the trends in its importance, and to compare the place it holds in our farming with its importance in certain foreign countries. According to the 193H census, there were in 1920 just a little less than a billion acres of land in American farms. Of this area approximately 89 per- cent was in pasture and crop land; the remaining 11 percent was in woods not pastured, in building sites, and in waste land. £f the land in crops end pas- ture, 52 percent was pasture, and 48 percent was in crop land. Of the pasture, only 27 portent was reported as tillable, The remainder was pastured woodland and oth^r untlllable land used as pasture. Figure 1 shows 12 regions, as blocked out for purposes of analysis by the Planning Division of the Agricultural Adjustment Administration. Figure 2 shows the percentage of all farm land in pasture by these regions. An examine-' tion of Figure 2 shows important variation in the relative importance of pastur . The highest percentage of land used for grazing is found in the range region. The reasons are obvious. Because of the natural conditions which make this vast territory unfitted for more intensive uses, it has become highly specialized in the grazing of cattle and sheep, m st of which s re taken to other areas for fin- ishing en grain and roughage before they are moved to the market. > The next highest relative position of pasture is found in the Mixed Farm- ing and Fruit Regions. These represent scattered areas in various parts of the ^ country in which the better lands are used for intensive crops and tin poorer parts, representing the nv.jor part of the total, as pasture. The Dairy Region also shows- a relatively high pe percent of the tillable farm land and pasture *7 percent. In addition, there is a large area of rough, untillable land which is also used for grazing. In the United Kingdom the "arable" land represents 37 percent and permanent grass 63 percent of the presumably tillable area. There is in addition a large extent of untillable land, part of which is used for the grazing of livestock. New Zealand represents the extreme in the dominance of pasture. Only 12 percent of the land which has been improved in that island country is in cr>ps* whereas tame grass pasture Occupies PS percent and in addition there is almost an equal area in native grasses which is used for the grazing of livestock. It has been suggested that the United States should follow the example of these countries which have apparently found thet their b st economic interest is served by keeping a very hirh percentage of th< ir land in grass. It is furth* r pointed out that the trends. in land use in these countries has been toward more pasture and that, this represents a rational adjustment to depressed conditions in agriculture. There are special conditions affecting the adjustments in these foreign countries, however, which should not be loot sight cf. They all have a marine tclimate, which tends to give pasture a higher comparative advantage than cro'S. This is partly for the reason that the production and ripening of grain is less successful than in the countries with a continental climate such as our c: : n, end partly .-.that these same climatic conditions are ideally suited to the production of grass and other pasture crops with an extremely high carrying capacity. In the competition between these different land uses, therefore, it is net surpris- ing that pasture has the ascendency. In the case 'of New Zealand there is the additional factor of long distance from important o on suming markets, which makes it profitable to concentrate the products of the land into high-specific-value animal products which reduce the freight charges to a minimum. In contrast' with the figures from the countries just listed, we may take the example of certain European continental countries. According to the la available, figures from Germany, of the total acreage occupied by crops and pi - ture 7 if; per- ant are in crops ■ nd «nly 28J- percent in pastures* In France these 4 figures are *2 percent and. 3? percent, respectively. This situation represents the remits of a combination cf factors including a, continental climate, a rela- tively dense rural population which necessitates intensive use of land, and a type cf farm economy characterized by a very high degrep of self-containment. Coming back to a consideration of the place of pa: turp in. cur o W n coun- try, it is worth while to consider the trend in the importance of pasture. Fig- ures 3 and 4 show geographically thp shifts in the use of land for pasture be- tween I909 an d 1329, as shown by the county census figures for these 2 years. Each dot in these maps represents 5,000 acres. Figure 3, showing the areas in which pasture has decreased, reveals that in only a few scattered areas has there been any decrease. Most of thin decrease is in the Corn Pelt, notably in north- western Iowa and adjoining areas, with some scattered decreases in other parts of the Corn Belt and- the northeastern States. Limited decrease.-, are shewn in the Panhandle of Texas and in other portions of the Great Plains. The decreases in the Corn Belt are in those areas favored with the most highly, productive soil. and most level surface, which give the production of grain a high comparative advantage. The decreases shewn in the southern Great Plains represent for the most part the Yreaking up of grazing land for the production of wheat and cotton in response to factors such as mechanization, which led to the recent remarkable expansion in cropping in this region. Figure 4 shews that an increase in pasture acreage has been widespread and of very substantial proportions. Some, of this increase, to be sure, is nomi- nal rather than real. Throughout the Great Plains it. represents, for the most part, the incorporation into actual farms of public land previously uge than can be obtained from corn under normal yields. This is not true, however, 8, of the, average pasture now found on American farms. The great bulk of it is decidedly Lower in productivity than the grain crops which could be grown on most of the— tillable lend which is in prsture or might be put in pasture. Cer- tain retetion pasture crops such as sweet clover , end probably lespedeza, can compete to edv-. ntege with octs and other smell-grain feed crops on lends that are : uit ; .ble for such roti.ticn pasture crops. Some of the blue-grass pasture in the areas of more favorable soil can probably compete on fairly even terms with these grain crops. However, these high carrying-capacity pastures are the ex- ception nether than the rule in American farming. If p sture is to occupy a more import- nt position and t^ke its place as a means of preventing soil erosion enu the depletion of fertility which now presents such an acute problem, it is obviously necessary to build up the productivity of pastures. If they cennot be given a stronger competitive position as compared with grain crops, the proposal to increase the acreage in pastures will encounter e.lmost hopeless resistance en the p-rt of farmers. Those same considerations which have been discussed in terms of costs can probably be more effectively presented in terms of gross and net income from farming. A basic principle in private economy is thet of maximum utilization rf resources. It means that the former's motive in planning the use of his lend, labor, end equipment is th-t of getting the largest possible income from them. Too often, it is true, this motive is considered from the point of view of a short-time return and does not consider adequately the longer time aspects of it. However,. it is one of the moat stubborn realities in the farming situation. It refloats the basis of the farmer's thnking in the use of his lend. He insists on using it in the way v/hich appears to him to promise the maximum income in terms cf salt i. nd direct household use of products. Since the fixed elements in his resources so largely dominate, this very lrrgely becomes a matter of maximum gross income. There is, to be sure, en import-: nt collective e-spect of this matter in terms .of the relation of supply end demand of the various farm products as they affect not only price but total income. The price of the product is one impor- tant element v/hich the farmer must consider in reaching his objective of maximum utilization. His consideration of this factor is probably far fr*m adequate be- ceuse cf his lack of understanding of economic forces. Moreover, he is at a fundaments 1 disadvantage as sn individual in considering it because his individ- ual action matters so little in the whole alignment of forces which determine price. This is probably the most important reason back of the present agricul- tural adjustment program. However, even with the present machinery of adjust- ment, or under conditions v/hich may result from a rational evolution of the pre- sent adjustment efforts, the fanner will still have a major responsibility in determining the use he makes of the things he has to produce with. It is impor- tant, therefore, that this fundamental motive in farm economy be given due con- sideration in the proposals for modifying the present position of pastures in ricen farming. Pasturos in Relation to Land Use Planning Let us now turn our attention to the rn^re specific relations of pastures to land-use planning. While th^ mere direct -and objective aspect of this rela- tion is that of the need to save the soil from the damaging affects of erosion, as well as to build up and preserve an adequate supply of the elements cf tility, other factors nf at least pqual importance must be kept constantly in view. The ultimate objective in efforts to conserve natural resources is to 9 strengthen the basis for an adequate standard of living* ' is ii therefore, to keep in mind that Land is to be c .' own sake. The first consideration L.i to how any given proposed mi will affect the economic welfare of the users, both present on f ; future. If, for example, we art going to have in the future ^crp people on the land : directly on farming for their economic opportunity, this must be taken into ac- eount in determining 1 he piece we propose to give to pastures in a farm-land planning program. The scriptural dictum "man cannot live by broad alone" is often quoted; it might be proper to observe here that neither can he eat gr- at all except as it is converted into its appropriate products. The mrre prac- tical and accurate question is, Can w & utilize the products derivable from an appreciably higher proportion of pasture in a way to realize maximum benefits from our lend resources? Can we by this means maintain a production of ell of the; various agricultural products rationally balanced with the needs of our people? These questions imply the importance of a well-rounded consideration of all of the legitimate objectives and all of the forces and conditions involved in land -use planning. Difficult as it is to reconcile all of the conflicting interests end considerations, it is not unreasonable to expect that the motive of saving the lane and that of realizing an edeourte food supply and an ample economic opportunity for those engaged in farming ere not antagonistic but can be harmonized into ultimate realization. We can probably best got at the concrete phases of the relation of pas- ture to the need for planning future use of land by e study of the present situa- tion in certain so-called problem areas. Figure 6 2/ shows the percent---g-. of the total crop end pasture lend in farms in 31 such areas occupied by (1) in- tertilled crops, (£) non-intertilled crops, and (?) pastures. The se r.reas ere all in the eastern and more humid portion of the country. Inspection of this chtrt shows that the intertilled, end henee more highly erosive r.rops, have their highest relative importance in the areas of the Cotton Belt. A peculiarity of the preve iling types of farming systems in the South is that there is no essentiel relation between the chief crop - cotton - and livestock. In most ether areas where livestock is grown there are important supplementary and complementary relations between the crops end the livestock and hence a more intimate relation between these crops and pasture. This is not true of cotton, since it is not a feed crop end is not essentially tied up with the other activities of the farm except as such activities interfere with the labor demands of the cotton crop. Since cotton must be intertilled and since, as the chart shows, it is so much more import-. nt than the non-intertilled crops, there tends to be almost constant use in cotton of the 1-nd best fitted for it. Ttie pcor^r land is n tun lly releget^d to pesture and there is extremely little in the way of crop rotation, prrticularly as it involves p< sture. This condition encour£:..es erosion, augmented to a considereble degree by the fact that the frost-free season amounts to elnost the entire year, thus giving the L?nd but little rest from the effects of soil-depleting forces. It is under these condi- tions that erosion has reached its most advanced stege. The non-cotton areas shown in the chert heve r very lov; percentage of in- tertilled crops and a high percentege of pastures. In most of these erees live- stock constitutes e tie between crops and pastures end tends to minimize the ef- fect of erssion. In most of -Miest- areas also non-intertilled crops, mostly hay, 2/ Data supplied by 7/. W. Wilcox, Agriculture! Economist, Agriculture 1 Adjust- ment Administration. which, in an erosion preventive, exceed intertilled crops in importance. This means that there is opportunity to keep the int >rtilled crop area in. grass for a pert of the rotation period, and thus to minimize the effects cf erosion. This system of farming represents a fairly satisfactory adjustment of the crop- ping and pasture system to the n ture of the land. In the Corn Belt areas, as shorn by the chrrt, there tends to be a prac- tically even distribution between intertilled crops, non-intertilled crops, and pasture. In this region the winter months are e resting period with reference to erosion forces Dnd there is the closest sort of relation between the two classes of crops grown and the pasture. This relation -rises from the impor- tant livestock enterprises which are themselves built upon the products of the land. Here, again, r fairly workable adjustment has been achieved. Going over the different parts cf the country once more for brief com- ments with reference to points of policy and planning on the matter of pasture in the cropping systems, it would appear th r t the southern problem is brg.]y that of preserving an adequate sen ■ ; i' crop 1-nd and cf keeping up its productive quality; this in the f i ce of the difficulties inherent in the farming system and the climate which makesthc prevention of erosion very hard. It is probable that :s time goes on more emphasis will be placed upon pasture, feed crops, -md live- stock as a regul r r though minor source of farm income in the South. Her/ever, the natural disadvantages of such n system in this region as compared with the present specialized livestock ore- s, .together ?;ith the conomic and physical con- ditions which give cotton its unquestioned ascendency, seem likely to make this solution of the problem only i p-rti'l one. Something must be cone to preserve the quality of the best cotter lends, which represent the heart of the agricul- tural resources of the South. The protective possibilities cf cover crops is an important element in the solution of this problem and has at least an indirect bearing upon the pasture problem. However, the. posture problem itself centers more specifically in the miner developments already referred to, namely, the growth of feed crops ■ nd pasture to support a limited livestock enterprise. In this relation pastures can no longer be locked upon merely as a vacation for worn eut land. The questions of their vegetation end management must be taken up nut only from. the point of view of resuscitating land fertility but in connection with their use as a direct source of income through livestock. Throughout most of the areas in the North, it seems questionable as to whether any very substantial further movement toward permanently shifting land from crops to pasture can be economically maintained. The solution of the prob- lem in most of these areas would seem to be in the direction of preserving from loss the present crop Isnd without taking it permanently out of crops. This means, for the most p r rt , a greater attention to effective rotations involving legumes which will not only contribute to erosion prevention through providing a larger amount of humus in the soil, but will raise the yields of grain crops so that the s\me amount, or at least an adequate amount, of grain crops can be raised upon a more limited i ore age, thus rr king it possible to keep a larger pro- portion than at-ipresent of the crop land in bo !•},- con serving crops which, in- cidentally, means enhanced .pasture resources. Inmost areas, provided suitable soil-building crops can be found, the gain in., yield per acre will be . enough to compensate for the reduced acreage occasioned by the soil-building crop in the system. One of the outstanding needs in this connection is the developmenl popularization of an Dcid-tol ra I Legume which will function in the ecid-soil areas in approximately the sane way that sweetclover is coming to function in the sweet-soil areas. Lespedeza is such a crop, but its present adaptability places •--. northern limit to its territory som wh< re in the southern half of the Corn Pelt. At present the greatest hone for this sort of crop in the northern half of the Cum Belt end in the Dairy Region seems to be sweetclover. But the necessity of incurring the hoavjr costs involved in lining the lend to - sweetclover e scf_ crop is :n effective bar to its very wide development , at least under present economic conditions. Probably no greater contribution to the preservation of the ..oil of the Middle West, end the improvement of cropping systems from the point of view of the support of livestock, could be m< d< by the agronomists than that of discovering, developing, and popularizing e successful acid-tolerant legume crop which would fit as well into cropping systems on the acid soils of the Corn Belt rod the Dairy Region as sweetclover does no?' on the sweet soils. It has been suggested in many quarters that the increase in pasture l°nd, which is assumed to be needed in certain hilly sections, particularly of the southern Corn Belt, and in other areas throughout most of the -^gricultur-1 por- tions of the country, might be' greatly facilitated by the consolidation of forms, which is assumed to be needed in o der to provide an ample economic holding un- der a condition of the less intensive use of land represented by a pasture system. It seems feasible, from an offhand consideration, to plan for converting con- siderable areas of hilly farm land, now in relatively small farms, into larger grazing holdings almost to the exclusion of crop growing. When one goes into the factors involved in such a proposal, he encounters oh" t will probably be serious barriers to the successful carrying out of the pirn. In the first place, with the back-fl^w of population from industry to agriculture, ?ve can ill efford to reduce the number of farms. Thousands of farm families with recent farm ex- perience are now living "on roliof" in the cities and towns of our egricultural regions cecause they have been displaced cither as tenants from the farms of landlords who had to move back on their farms to make their own living, or through foreclosure of mortgages in the case of owner operators. Presumably, many ether thousands of men recently employed in industry, but now out of employ- ment, who have an agricultural background, are potential competitors fcr the op- portunity to occupy and run a farm. The c- so must be mrde air-tight to justify a reduction in the number of ferns under the present conditions. Such justifi- cation is probably limited to the plainly submarginal situations where the land is being cleared by the Government to be converted into grazing reserves or con- solidated holdings for grazing enteritises. This is particularly exemplified by situ-, tions in the Great Plains and other portions of the grazing region. Another consideration in connection with the proposed consolidation is the question uf whether the pasture type of use a/hich is contemplated will sup- port the investment involved in building up a lergor holding. Assuming thrt the present systems of use of such ltnd yield a lerg .' current income per acre th*n this land would yield if used entirely or ractly fcr pasture, we hpve * competi- tive element which must be faced in considering the new proposal. Lower use must be accompanied with lower investment p r acre in order to be successful. It looks as if it wore not possible, in the face of the present competition for farms, to seale down these values to a pester-- 1 -use-returns basis. Summing up the considerati as so loosely discussed in the fi re joing, may condense them into fcur propositions r.s follows: (1) The first objective in considering the expanded use of pasture is to Hake a better present and long-tine opportunity for the people on the lend. This does not mean merely a pi* ce on the lond for those unfit for faraiihgj but in the long run, if opportunity for industrial employment continues to be lack- ing, we must look for a higher percentage of our people on farms solely through the results of less migration frum farms to industry. (2) The second objective would seem to be to save the land and make it more productive. This and the first objective, are, in the long run, compatible end hr.rmonious. Their realization involves conservation of land with the use of lend. (3) Contrary to the recent assumption that the service of those whose life work had been devoted to means of making the fanner more efficient rnd his lend more productive are now outdated End unneeded, it would seem.' that the pre- sent situation -nd its demands require more service from those men th r n over be- fore. Consequently, the agronomists concerned with the development of pastures and other forage crops have e broader and more important responsibility. 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NORTH TEXAS OKLAHOMA CROSS TIMBERS- -- PINEY WOODS SECTION BLACK WAXY PRAIRIE SOUTHERN BLUE RIDGE CENTRAL PIEDMONT NORTHERN BLUE RIDGE EASTERN TENN. VALLEY SHENANDOAH VALLEY CUMBERLAND HIGHLANDS NORTHERN PIEDMONT CENTRAL PENN. PITTSBURGH DAIRY WEST VA. HILLS EAST OHIO AND WEST VA.- PENN. GENERAL FARMING - SOUTHERN LOAM TOBACCO INDIANA, KENTUCKY INDIANA, KENTUCKY, OHIO - K Y., OHIO, TOBACCO SOUTHWEST WISCONSIN •- NORTH EAST IOWA MO. VALLEY LOESS MO..IOWA AND ILL.- PERCENT 20 4-0 60 80 I00 U S DEPARTMENT OF AGRICULTURE INTERTILLED CROPS OTHER CROPS PASTURE V///////////////S777T V/////////AW//////A V////////A V//////A Y/////////////X V/////////////A V///////////A V/A//////AA W//AW//AAA V/AW/A VAAW//A V////S///A////A//W77AT ^/////// /////// ///// ////A '////// ////// // //A WAAAA/AASAAAA/AAA////A>A>//A\ w/a///;/;;;/// / >aaa;a///a>/a/a;aa/Z77Z7X V////////////////////////A V///////////////A//AA/A////AA/A//A- V//////////////A/7777A- V///////////////777ZT W///////AW///AT '///////////////////////A/A VAAAAAAAAASAAAAAAAAAAAAAAA 'AAAAAAAAAA/AAA/AZ7777T VAA//AA////AAAAAA7777X NEC 28116 BUREAU OF AGRICULTURAL ECONOMICS Figure 6 - Note the high relative position of intertilled crops in the cotton areas as compared with other areas* note their low posi ti0n in the hillier areas.