Cottonseed Equals Oilseed?

Illinois extension has a discussion on the possibility of cottonseed being added to the list of oilseeds covered by farm programs.  Up to now, even though cottonseed is more than 50 percent by weight of the product of the cotton plant, the fiber has been considered the crop, with cottonseed a useful by-product, like milk is the product of the dairy cow, with the meat being a by-product.  Apparently there's a push on to implement a provision of the farm bill to add it as an oilseed, but there's budgetary implications (maybe one billion dollars, almost real money) and trade-offs in terms of program provisions and encouraging/discouraging crops.