In past decades, agricultural policy was always thought of as policy toward farmers who produce our food and fiber or other rural people who depend on farmers for their livelihood. Accordingly, past policies were translated into programs of research, education, electrification, price supports, and related commodity programs.

After a time, it was realized that many farmers did not benefit from price and income programs in particular. They lacked the resources to enter the commercial market through which price programs operated. It was decided that the problems facing these people called for credit and other special programs to help them graduate into the commercial field.