HomeMy WebLinkAboutAgenda - 04-08-2025; 3 - Orange County Draft Agricultural Viability and Farmland Stewardship Plan 1
ORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: April 8, 2025
Action Agenda
Item No. 3
SUBJECT: Orange County Draft Agricultural Viability and Farmland Stewardship Plan
DEPARTMENT: Environment, Agriculture,
Parks and Recreation
ATTACHMENT(S): INFORMATION CONTACT:
Draft Agricultural Viability and Farmland Peter Sandbeck, 919-245-2517
Stewardship Plan David Stancil, 919-245-2510
PowerPoint Presentation
PURPOSE: To receive a presentation summarizing the draft Orange County Agricultural Viability
and Farmland Stewardship Plan.
BACKGROUND: The goal of Promoting Sustainable Agriculture is included in the Orange County
Strategic Plan 2025-2029 as a primary means of achieving one of the County's top Strategic
Priorities of Environmental Protection and Climate Action. The Strategic Plan states that the
County will "incentivize and promote sustainable agriculture and local food systems development
through supportive policy, funding, farmland protection, and educational outreach." To support
the County in these efforts, the Orange County Agricultural Preservation Board's Farmland
Protection Subcommittee has prepared a draft Agricultural Viability and Farmland Stewardship
Plan. The Plan has been reviewed and endorsed by the Agricultural Preservation Board and
forwarded to the BOCC for consideration.
The draft Plan describes recent trends in agriculture and farmland loss, challenges to and
opportunities for continued farming, vision and goals for agriculture, and recommendations for
maintaining farmland and supporting a viable farming community in Orange County. The Plan
meets content guidelines outlined in the North Carolina General Statutes (§ 106-744) for
preferential eligibility for NC Agricultural Development and Farmland Preservation Trust Fund
monies supporting agricultural viability and conservation projects. Counties must have adopted a
countywide farmland protection plan to be eligible for preference for Trust Fund monies.
This draft Plan updates the County's Agricultural Development and Farmland Protection Plan
adopted in 2009. It is intended to be a dynamic Plan that is updated and reissued biennially to
address the needs and challenges associated with a rapidly evolving agricultural landscape.
Actions recommended in the Plan are proposed to be implemented over the next five (5) years
from 2025 to 2029 in keeping with the timeframe of the County's Strategic Plan.
FINANCIAL IMPACT: There is no financial impact associated with receiving this presentation.
ALIGNMENT WITH STRATEGIC PLAN: This item supports:
• GOAL 1: ENVIRONMENTAL PROTECTION AND CLIMATE ACTION
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OBJECTIVE 3. Improve educational opportunities for County staff and community
members on climate action and available resources to advance climate action projects.
OBJECTIVE 4. Incentivize and promote sustainable agriculture and local food systems
development through supportive policy, funding, farmland protection and educational
outreach.
OBJECTIVE 6. Protect water supply/watersheds.
OBJECTIVE 7. Conserve and protect high priority open space, including Natural Heritage
sites, nature preserves, watershed riparian buffers, and prime/threatened farmland.
• GOAL 2: HEALTHY COMMUNITY:
OBJECTIVE 7. Invest in services and programs that improve the health and quality of life
of the community (e.g., recreation and public open spaces, arts)
• GOAL 5: PUBLIC EDUCATION/LEARNING COMMUNITY:
OBJECTIVE 1. Foster collaborative relationships with formal and informal educational
organizations and agencies to provide opportunities for community members to meet,
connect, and learn together.
OBJECTIVE 3. Provide support for workforce development through training, tools,
technology, and other resources.
• GOAL 6: DIVERSE AND VIBRANT ECONOMY:
OBJECTIVE 2. Review and revise County policies and regulations to support business
investment in Orange County.
OBJECTIVE 4. Provide resources to small, creative, and agro-businesses that add
character and quality of life to our community to attract employers, employees, and visitors.
OBJECTIVE 6. Provide workforce and business development resources to enhance the
skills of residents of the County.
RECOMMENDATION(S): The Manager recommends that the Board receive the presentation
summarizing the draft Plan, discuss the draft Plan, and provide feedback.
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Agricultural Viability and Farmland Stewardship Plan
for Orange County, NC
2025-2029
DRAFT
Orange County Agricultural Preservation Board (APB)
APB Farmland Stewardship Subcommittee
Orange County Cooperative Extension
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Table of Contents
Executive Summary Page 3
1 . Overview Page 7
2. Importance of a Robust Local Agriculture Page 8
3. Challenges to Agriculture in Orange County Page 10
4. Opportunities for Agriculture in Orange County Page 16
5. Goals for Agriculture in Orange County Page 19
6. Recommendations and Priority Actions Page 22
7. Potential Sources of Funding Page 36
8. References Page 38
Appendix 1 . Summary of 2023 Orange County Farmer and Page 41
Landowner Survey
Appendix 2. Recommendations for Criteria for Identifying
Farmland for Protection in Orange County Page 48
Appendix 3. Recommendations for Framework for Revisions
and Additions to the Unified Development Ordinance
to Strengthen Farmland Protection Page 51
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Executive Summary
Agricultural land use and farming practices are fundamental determinants of how
Orange County---and the rest of the world---meet the most pressing challenges of our
time: climate change, environmental degradation, and population-wide poor health
related to overreliance on food produced within a globalized, industrial system. Indeed,
the Orange County Strategic Plan 2025-2029 advances development and support of
sustainable agriculture and local food systems as important means of achieving the
County's top Strategic Priorities of Environmental Protection and Climate Action. This
Agricultural Viability and Farmland Stewardship Plan was developed to support the
County in achieving these Strategic Priorities. It describes recent trends in agriculture
and farmland loss, challenges to and opportunities for farming enterprises, vision and
goals for agriculture, and recommendations for enhancing agricultural viability and
stewarding farmland in Orange County.
The main challenges to agriculture in Orange County-farmland conversion to
development and poor economic viability of agriculture-are longstanding and have
intensified in recent years. They interrelate with additional challenges including the
impact of climate extremes on farming and the aging of the farming population. These
challenges are not insurmountable, particularly in the context of the opportunities:
• Orange County soils, climate, and water resources can support agriculture now
and into the future.
• Orange County has strong and growing communities of small, diversified farms
and new and beginning farmers.
• Established Orange County farmers are passionate about their work and want to
keep their land in farming.
• Orange County citizens value agriculture and recognize its benefits to the
County, and community members seek food grown sustainably and locally.
• Local food hubs have operational expertise and capacities to manage the
aggregation, distribution, and marketing of products from small-to-medium-size
farms to support them in reaching larger markets.
Building on its assets and strengths, Orange County can minimize continued farmland
loss and foster a thriving agricultural community that supports a robust local food
system. The following three Goals and associated Recommendations and Actions will
help the County to realize this vision. Implementation of the Recommendations will help
make Orange County a place where
• Farm viability is enhanced, and farmland is maintained and stewarded for
agricultural uses through judicious land use planning and educational, logistical,
and financial support.
• Citizens and decision-makers have the information and resources they need to
support local agriculture and the farming community.
• Farmers are supported in their livelihoods with educational, financial, and
infrastructural resources.
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GOAL 1: Plan FOR Agriculture: Elevate farmland stewardship to being a central
consideration in land use planning and decisions. Continued farmland loss can be
mitigated through proven land use planning approaches such as compact
development, minimization of sprawl, strengthened development in areas where
development has already occurred, and permanent protection of farmland and open
space.
GOAL 1 RECOMMENDATIONS:
1) Assess, document, and communicate the status of agriculture in Orange County.
a) Assess farmland conversion trends in the County on a biennial basis through GIS
mapping.
b) Conduct a biennial County-wide agricultural census.
c) Complete an Economic Impact Assessment of agriculture in the County.
d) Complete a new Cost of Community Services study of agriculture in the County.
e) Communicate farmland conversion trends, County agricultural census results, and
economic data in the biennially updated Agricultural Viability and Farmland Stewardship
Plan and on a County agriculture web page/website.
2) Elevate agriculture to a primary use in land use planning, regulations, and policy.
a) On the Planning Board, include an Agricultural Preservation Board member. On the
Agricultural Preservation Board, include a Planning Board member.
b) Adopt the Agricultural Viability and Farmland Stewardship Plan as a reference in or a
component of the 2050 Comprehensive Plan.
c) Adopt a Prioritization Method to identify and target farmland for conservation in
coordination with existing Lands Legacy prioritization criteria.
d) Adopt modifications and additions to the Unified Development Ordinance (UDO) and to
County policies to elevate agriculture to a primary use in land use regulations and policy.
GOAL 2: Conserve Farmland Through Direct Measures: Promote the benefits of and
strengthen opportunities for farmers to use direct measures to conserve their farmland.
The most effective means of protecting farmland are direct measures: namely
permanent agricultural conservation easements and transition plans or estate plans
that provide for continuing operation of farms when owners retire or die.
GOAL 2 RECOMMENDATIONS:
3) Increase the rate at which Lands Legacy Program conservation easements are
granted.
a) Increase the funds available for County purchase of Lands Legacy Program
conservation easements.
b) Identify and implement additional frameworks for County collaboration with non-County
conservation organizations (e.g., Triangle Land Conservancy, Eno River Foundation) to
secure easements. Explore the possibility of reactivating the Orange County
Conservation Alliance.
4) Use the VAD/EVAD (Voluntary Agricultural District/Enhanced Voluntary Agricultural
District) program as a steppingstone to permanent Lands Legacy Program
conservation easements.
a) Intensify VAD/EVAD recruiting efforts through direct mail, County website, direct
outreach, and Agricultural Preservation Board member engagement.
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b) Encourage farmers in the VAD/EVAD program to participate in a conservation easement
workshop, and incentivize enrollment.
c) Fund complimentary easement-related legal and financial consulting for VAD/EVAD
landowners considering putting their land in a conservation easement.
5) Provide farmers with education and resources on transition planning and farmland
conservation.
a) Fund complimentary transition planning consulting to VAD/EVAD landowners and
farmer-landowners holding Lands Legacy Program conservation easements.
b) Convene an annual Transition Planning/Estate Planning summit for County farmer-
landowners.
c) Educate owners of forestland about the benefits to the environment and the climate of
conserving forestland and the financial benefits of managed forestland.
d) Conduct a County-wide outreach program to better understand farmer and landowner
perspectives on transition plans to support customized approaches to transition planning
and conservation.
6) Establish an Agricultural Viability and Farmland Stewardship coordinator role in the
County.
a) Define the duties of the coordinator role.
b) Assign the position a place in the County organizational structure and allocate funding
for it.
GOAL 3: Enhance the Economic Viability of Agriculture by:
• Providing new business opportunities for farmers through market development,
education, diversification, and cooperation; and
• Increasing local demand for Orange County farm products by increasing
awareness of their value and benefits.
Enhancing the economic viability of agriculture in the County entails agricultural
development that facilitates productivity as well as market development that increases
demand for local agricultural products.
GOAL 3 RECOMMENDATIONS:
7) Expand educational opportunities in agriculture and agricultural business
development.
a) Offer both new- and established-farmer-targeted coursework and bootcamp with
curriculum to include business development, agritourism, crop production, livestock
management, marketing.
8) Support farmers in expanding and diversifying their businesses through agritourism.
a) Form a County Agritourism Networking Group for peer-to-peer agritourism education and
support.
b) Incorporate an agritourism module into the new and beginning farmer education
program (Priority Action 7a).
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9) Support farmers in efforts to expand into wholesale markets.
a) Educate farmers about the benefits of, and provide funding for, their GAP certification.
b) Fund and implement a farm-to-school pilot program to get food from Orange County
farmers into Orange County Public Schools.
c) Provide opportunities for aggregation, sale, and distribution of Orange County farm
products to County and NC-wide markets through collaboration with a local food
aggregator/distributor. Food hubs can aggregate, store, and distribute products from
multiple farmers to achieve and distribute wholesale quantities that individual small
farmers cannot achieve on their own.
d) In collaboration with the NC Department of Agriculture and in consultation with Tri-COG
FEEDS (Food Ecosystem Economic Development Strategy), conduct a feasibility study for
a regional market and aggregation/distribution center in the vicinity of I-40/1-85.
10)Provide citizens and decision-makers with information and education on agriculture
in Orange County and with opportunities to engage with the farming community.
a) Update the Agricultural Viability and Farmland Stewardship Plan biennially. Discuss the
biennial update at a Board of County Commissioners meeting dedicated to agricultural
viability in the County.
b) Publicize and communicate about Orange County agriculture through an Agriculture
web page or website, social media, and other electronic means.
c) Convene a periodic agricultural festival for the public.
d) Expand the County Farm-to-Table event to reach more children.
11)Offer financial incentives for agriculture and agricultural development in the County.
a) Broaden eligibility criteria for Agricultural Economic Development grants to include
agricultural support entities (e.g., NC FarmLink, Farmer Foodshare), and allow flexibility in
awarding grant funds across three categories of recipient (new farmers, established
farmers, agricultural support entities).
b) Fund new-farmer-startup grants and develop tax credits to assist qualified new farmers
with purchase of farmland.
c) Identify and establish property tax incentives to support farm sustainability.
d) Conduct a multi-County pilot program to reduce the acreage requirement of the
Present Use Value Program to 1 acre.
Potential funding sources include
• Deferred Taxes from Farmland Coming Out of the Present Use Value Program
Properties in the Present Use Value program coming out of agricultural use are subject to
deferred taxes with accrued interest, immediately due and payable, for the year of
disqualification and the three previous years. Revenue generated from these tax dollars
could be directed to an Agricultural Trust Fund. Similar successful programs are currently
operating in Cabarrus County, Chatham County, Lee County, and Wake County.
• Land Transfer Tax
North Carolina counties have the ability, granted by the North Carolina General
Assembly, to levy a tax on the sale of real property. For Orange County, the tax can
amount to 0.4% of the sale price of real estate levied in the year of the sale. To be
implemented, the tax must be approved by a majority vote of citizens.
• Grants from entities including the Agricultural Development and Farmland Preservation
Trust Fund, Golden Leaf, the North Carolina Tobacco Trust Fund, and the Orange County
Farm Bureau.
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1 . Overview
Orange County citizens and decision-makers recognize the economic,
environmental, and cultural benefits of sustainable agriculture and the necessity
of a robust local farming community. The goal of Promoting Sustainable
Agriculture is included in the Orange County Strategic Plan 2025-2029 as a
primary means of achieving the County's top Strategic Priorities of
Environmental Protection and Climate Action: The County will "incentivize and
promote sustainable agriculture and local food systems development through
supportive policy, funding, farmland protection, and educational outreach"
(Orange County, 2024).
This Agricultural Viability and Farmland Stewardship Plan was developed to
support the County in incentivizing and promoting sustainable agriculture and
local food systems development. The Plan describes recent trends in agriculture
and farmland loss, challenges to and opportunities for continued farming, vision
and goals for agriculture, and recommendations for maintaining farmland and
supporting a viable farming community in Orange County. The Plan meets
content guidelines outlined in the North Carolina General Statutes (§ 106-744) for
preferential eligibility for NC Agricultural Development and Farmland
Preservation Trust Fund monies supporting agricultural viability and conservation
projects (NC General Statutes, 2024).
This Plan updates the County's Agricultural Development and Farmland
Protection Plan issued in 2009. It is intended to be a dynamic plan that is
updated and reissued biennially to address the needs and challenges
associated with a rapidly evolving agricultural landscape. Actions
recommended in the Plan are intended to be implemented over the next 5
years from 2025 to 2029 in keeping with the timeframe of the County's Strategic
Plan.
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2. Importance of a Robust Local Agriculture
Agricultural land use and farming practices are fundamental determinants of
how Orange County---and the rest of the world---meet the most pressing
challenges of our time: climate change, environmental degradation, and
population-wide poor health related to overreliance on food produced within a
globalized, industrial system (Walinga, 2009). Poorly managed farmland and
unsound agricultural practices can exacerbate these challenges. Conversely,
well stewarded farmland and sustainable farming practices can stabilize and
restore the environment, mitigate climate change, and support resilient local
and regional foodsheds (Pretty, 2008; Naresh, 2023). Sustainable agriculture
preserves and restores habitats, maintains wildlife corridors, protects watersheds,
enhances soil health, improves water quality, and sequesters carbon. Besides
conferring these environmental and climate benefits, sustainable agriculture is
the bedrock of local food systems development (Chao, 2024; MacFall, 2015)---
essential for addressing the threats to the global food supply posed by weather
extremes, political instability, and biological threats such as pandemics.
Partly because of their impact on natural resources, the environment, and
climate, agricultural land use and practices also underpin local, regional, and
global economies. There is no economy without a healthy environment and
people, a climate that supports life and good livelihood, and an accessible,
nutritious food supply.
"Agriculture is not crop production as popular belief holds-
it's the production of food and fiber from the world's land and
waters. Without agriculture, it is not possible to have a city,
stockmarket, banks, university, church, or army. Agriculture
is the foundation of civilization and any stable economy."
-Allan Savory
A comprehensive assessment of the economic impact of agriculture in Orange
County has not recently been undertaken. According to the 2022 US Census of
Agriculture, cash receipts for agricultural products sold in Orange County
exceeded $41 .9 million in 2022, and agriculture employed approximately 1% of
people (approximately 1500 people) in the County (USDA, 2023; Agricultural
Census, 2022). According to the North Carolina Forestry Service, Orange County
forest landowners took in an estimated stumpage harvest value of $1 .7 million in
2022 (North Carolina Forestry Service, 2022). The estimated economic
contribution of forestry output to the County's economy was $189 million, and
forestry employed 652 people. This Plan proposes an Economic Impact Study to
better quantify the current impact of agriculture in the County.
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The economic impact of agriculture on the local economy exceeds that
suggested by the values quoted above because of the linkages of agricultural
production with other economic sectors (Walden, 2014; Agricultural Trade
Multipliers, 2024). For example, agriculture economically impacts local suppliers
as well as local consumer industries. In a study using 2017 data, each $1 of
output produced using North Carolina-grown inputs was estimated to generate
$1 .7 to $19.1 (depending on the input) of new spending in the state (NC State
University, 2019). A similar multiplier effect likely applies at the level of the
County.
In addition to contributing directly to the local economy, farmland compared
with developed land saves the County money in expenditures associated with
community services. Across numerous studies (WeConservePA, 2024), agriculture
costs less in services than it raises in revenue. In a 2006 study conducted by the
American Farmland Trust (Renkow, 2006), for every $1 of revenue raised by a
farm, forest, or open space, Orange County spent only 72 cents on services. In
contrast, for every $1 in revenue raised by residential development, Orange
County spent $1 .24 on services. To obtain updated Cost of Community Services
statistics, a new Cost of Community Services Study is proposed in this Plan.
Orange County decision-makers recognize the economic, environmental, and
cultural benefits of sustainable agriculture and the necessity of a robust local
farming community. The goal of Promoting Sustainable Agriculture is included in
the Orange County Strategic Plan 2025-2029 as a primary means of achieving
the County's top Strategic Priorities of Environmental Protection and Climate
Action (Orange County, 2024).
Orange County seeks to "incentivize and promote
sustainable agriculture and local food systems
development through supportive policy, funding,
farmland protection, and educational outreach"in
support of its top 2025-2029 Strategic Priorities of
Environmental Protection and Climate Action.
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3. Challenges to Agriculture in Orange County
The necessity of maintaining a robust local agriculture notwithstanding,
agriculture in the County is imperiled. The main challenges to agriculture in
Orange County are farmland conversion to development and poor economic
viability of farming. These challenges, which Orange County shares with the
state and the nation (Freedgood, 2020), are longstanding and have intensified
in recent years (Orange County, 2009). They interrelate with additional
challenges including the impact of climate extremes on farming and the aging
of the farming population.
Challenge: Orange County is losing its farmland to development.
With excellent agricultural soils and gently rolling terrain, Orange County lies in
the heart of the Piedmont of North Carolina, an agricultural state with a
preponderance of Nationally Significant farmland, defined as that best suited
for long-term, intensive production of crops (Freedgood, 2020). Approximately
three-fourths of the County's land area comprises Prime Farmland or Farmland
of Statewide Importance (Orange County, 2009). Prime Farmland is defined by
the US Code of Federal Regulations as land that "has the best combination of
physical and chemical characteristics for producing food, feed, forage, fiber,
and oilseed crops, and is also available for these uses" (US Code of Federal
Regulations, 2024). Farmland of Statewide Importance is defined as lands that
are generally "nearly prime farmland and that economically produce high
yields of crops when treated and managed according to acceptable farming
methods" (US Code of Federal Regulations, 2024).
From the 1750s through the 1950s, most of Orange County's land was in farms
(Orange County, 2009). With population growth and the addition of new
residents in the 1960s and 1970s, acreage in farms declined steadily and
dramatically---a trend that continues to this day. The significant, continued loss
of farmland constitutes a threat to food security and agricultural security in the
County.
• According to US Census of Agriculture data based on farmer/producer
self-reports, approximately 146,000 of the County's 255,000 total acres was
in farms in 1959. Acreage in farms decreased to 71 ,010 by 2002 and to
53,068 by 2022 coincident with accelerating population growth
(Agricultural Census, 2022).
• Consistent with the census data, a satellite-imagery-based study
undertaken by the Farmland Stewardship Subcommittee of the
Agricultural Preservation Board in collaboration with the Orange County
Planning Department demonstrates a dramatic decrease in County land
devoted to crops (excluding grassland and forestland) from 21 ,610 acres
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in 2017 to 8821 acres in 2022 (Figure 1 ). During this period, acres in
development increased from 33,526 to 40,812.
Figure 1. Land in crops in northern and southern Orange County, 2017-2022. The data are based
on land cover as assessed by satellite imagery and land categorizations delineated by the US
Department of Agriculture National Agricultural Statistics Service Cropland Data Layer.
Grassland and forestland are excluded.
Acres
25,000
20,000
15,000
10,000
14,852
5,000 14
5,299
0
2017 2018 2019 2020 2021
E North ■South
*Grassland and forestland excluded
The high rate of farmland loss reflected in the satellite-imagery data and the
Census aligns with Orange County farmer/landowner perceptions. In a 2023
Orange County Farmer and Landowner Survey conducted by the Farmland
Stewardship Subcommittee, respondents overwhelmingly considered the most
important threat to farming in Orange County to be farmland conversion to
development (Appendix 1 for summary). They described low-density residential
development, in particular, as a threat (Figure 2). Low-density residential
development is characterized by few dwelling units on a large land area (low
population density). Low-density residential development most often takes the
form of single-family suburban homes with large lots and large green spaces
between homes.
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Figure 2. Representative verbatim responses regarding what respondents considered the most
important threat to farming to the County in the 2023 Orange County Farmer and Landowner
Survey
"As farmers age out and are dying, "Encroaching urban areas, "Housing development.This...leads
their heirs are selling land to cash farmland/forest land being sold to to increased cost of land and
out on its purchase value to developers for multi-family homes decreased value of land for
developers.More housing and multi-family developments agricultural purposes.There's a lot
complexes are being built on instead of being kept in
farmland while we are losing our farm/forest" more money in selling the land for
resources for soil,foodshed,and 5-10 acre lots than keeping it as an
farms.This will create a crisis for «[D]evelopment,particularly
intact farm.None of the land I see
both our environment and local
sprawling development that
ecosystem as well as for food encourages large(ao acre) for sale around me is selling as
production and water retention and lots. The county development farmland.It's simply not worth it.
filtering.We need to stop policies should encourage It's subdivided into plots and houses
developing every square inch of the clusters of homes leaving a
county?It took me 20 years of large percent of open space are built.This leads to ecosystem
working two jobs and investing to rather than making it easy to deterioration which decreases the
scrape together a down payment for develop io acre lots,s acre quality of farmland as well.I'm in
my small little farm.It should not lots. The problems of sprawl
be like this.There needs to be more in our county are the far northern reaches of the
done to save our farmland and COMPLETELYpredietable county....This is not isolated
counteract incentives to sell to based on the policies in place towards the southern more urban
developers." currently." parts of the county"
American Farmland Trust projections show that, if historical trends in farmland
conversion from 2001 to 2016 hold true through 2040 in a Business as Usual
scenario, Orange County will lose an additional 14,300 acres of farmland to
development (Hunter, 2022; American Farmland Trust, 2022). In a Runaway
Sprawl scenario characterized by low-density development and poor planning,
Orange County is projected to lose an additional 19,900 acres to development
(Figure 3). Most of that farmland conversion---70% of it through 2040---is
predicted to occur on the County's most productive farmland.
Figure 3. Projected conversion of Orange County farmland to development through 2040
(Hunter, 2022; American Farmland Trust, 2022)
Business as Usual:14,300 acres Runaway Sprawl:19,900
of farmland lost of farmland lost
:4
Converted from
- Farmland*
_ to Development
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ht(ps://deVelgpmen[204p.farmtland.org/ 'Farmland=rrgpland+pasture+wgodfand as5griated wish farms
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DRAFT/March 28,2025
Most of the farmland conversion in Orange County is projected to involve low-
density residential development as opposed to urban, commercial, or industrial
land uses (Figure 4).
Low-density residential development is especially harmful for farming because it
fragments agricultural land, thereby restricting its potential agricultural uses, and
negatively impacts operations of adjacent farms through effects including run-
off and beneficial habitat destruction (Box 1). Low-density residential
development also inflates the prices of adjacent farmland to make acquiring
farmland difficult or impossible for new and beginning farmers.
Low-density residential development also paves the way for further
development (Freedgood, 2020). In North Carolina areas where low-density
residential development is occurring, agricultural land is five times more likely to
be converted to urban and highly developed uses than agricultural land in
areas without it (Freedgood, 2020). Farmers in areas with development pressure
and high land values have been characterized as exhibiting impermanence
syndrome---a shortening of their planning horizon associated with uncertainty
and apprehension about the future (Adelaja et al., 2011 ; Perrin et al., 2020). The
impermanence syndrome, in the context of the opportunity to profit from sale of
farmland, can make farmers reluctant to invest in the farming operation and
can impel them to sell their farmland for development.
Figure 4. Projected conversion of farmland in Orange County to 2040 (Hunter, 2022; American
Farmland Trust, 2022)
Business 14,300 acres
as Usual
of farmland lost
Runaway
Sprawl 19,900 acres
of farmland lost
0 5,000 10,000 15,000 20,000
Acres converted
Urban and highly developed N Low-density residential
Urban and highly developed(UHD)land use includes commercial,industrial,and moderate-to-high density residential areas.
Low-density residential(LDR)land use includes scattered subdivisions and large-lot housing,which fragment the agricultural land base and limit production.
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Box 1.Totten Farm's Story
I have many concerns about the loss of farmland, farming culture and
community. 1 live in eastern Orange County, and the expansion of houses
and neighborhoods on both forested and agricultural land is
monumental. Last year/was gathering hay a quarter mile from my house.
In the span of nine months there are three houses being built there with a
fourth on the way. On property next to my driveway, there is a house that
went up this month and another on the way. So for me I have to find
another hay source, and deal with increased runoff on my land from
development, which cost me thousands of dollars in new driveway pipe
installation and loss of pasture due to erosion.
Choices have to be made by societies as to what is really important. The
loss of farmland and farmland impacted by development are a reality that
has become a nightmare for many who try to hold on to their land and way
of life. Once it's gone, it's not coming back....
Billy Totten, Orange County Farmer
We must learn to grow like a tree, not like a fire.
---Wendell Berry
Challenge: Agriculture is not an economically viable profession for most farmers.
Achieving farm profitability is challenging for farmers across the agricultural
spectrum from small farms selling directly to customers to large commodity farms
(Burchfield, 2022). Orange County farmers are no exception.
In the 2023 Orange County Farmer and Landowner Survey (Appendix 1 for
summary), the most frequently cited challenges to making a living farming were
small profit margins and high cost of land. Farming/forestry was the main source
of income for only 30% of respondents. Two in three respondents (67%)
employed 2 or fewer people including themselves in their agricultural operation.
USDA Census of Agriculture data show that, for Orange County farmers in 2022,
average gross income was $3655; average net income was -$2213 (negative
$2213) (Agricultural Census, 2022). Nearly 40% of farms (271 of 687) had <$2500 in
sales (Figure 5). Farming/forestry was the main source of income for only 30% of
respondents in the Census of Agriculture as in the 2023 Orange County Farmer
and Landowner Survey.
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DRAFT/March 28,2025
Considered in aggregate, the results suggest that, for many Orange County
farm businesses, off-farm employment is necessary to support the continuance
of the farm. These data are consistent with national data showing that US
households operating small farms (those with gross cash farm income less than
$350,000) usually depend on off-farm sources for the majority of their household
income (USDA Economic Research Service, 2024).
Figure 5. Number of Orange County farms by value of sales, 2022
$100,000 or more 43
$50,D00-$99,999 �ao
$25,000-$29,999 -ss
$10,000$24,999 99
$5000-$9999 84
$2500-$4999 as
x$2500 271
i
0 50 100 150 200 250 300
Number Of Farms
2022 Census of Agriculture—Orange Ccu my Data
USDA,National Agricultural Statistics Service
The varied, diverse causes of lack of farm profitability include volatility in the
weather; high labor costs; high costs of land, infrastructure, and supplies; and
artificially low prices for farm products (Burchfield, 2022). These factors have
been attributed to inherent vulnerabilities in the industrial food system,
overproduction and associated government subsidies, vertical integration
(whereby single corporations control suppliers, distributors, and sales outlets to
consolidate the food supply chain), and prioritization of corporate profit over
animal husbandry, natural resource conservation, and soil health (Wallinga,
2009).
15
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DRAFT/March 28,2025
4. Opportunities for Agriculture in Orange County
The challenges to agriculture in Orange County, while daunting, are not
insurmountable. Opportunities for agriculture in the County could catalyze
development of a strong agriculture that supports a robust local food system
and contributes to the food and agricultural security that many Orange County
residents seek.
Orange County soils, climate, and water resources can support agriculture now
and into the future.
Located in the Piedmont of North Carolina, Orange County has soils, climate,
and water resources that make it well suited for sustainable agriculture
supporting the County's 2025-2029 Strategic Priorities of Environmental
Protection and Climate Action (Orange County, 2009). Approximately three-
fourths of the County's land area consists of Prime Farmland or Farmland of
Statewide Importance. Prime Farmland is defined by the US Code of Federal
Regulations as land that "has the best combination of physical and chemical
characteristics for producing food, feed, forage, fiber, and oilseed crops, and is
also available for these uses" (US Code of Federal Regulations, 2024). Farmland
of Statewide Importance is defined as lands that are generally "nearly prime
farmland and that economically produce high yields of crops when treated and
managed according to acceptable farming methods" (US Code of Federal
Regulations, 2024). The long growing season runs from mid-April to mid-October
with the opportunity, with warmth-conserving measures, for extension to winter
and early spring months. The County receives approximately 45 inches of rain
annually. More than half of the County's 256,000 acres is forestland, which is an
important carbon sink (Hurteau, 2021).
Orange County has strong and growing communities of small, diversified farms
and new and beginning farmers.
Orange County in 2024 is home to a growing community of small, diversified
farms that are critical for supporting the County's 2025-2029 Strategic Priorities of
Environmental Protection and Climate Action and for developing local
foodshed resilience. Agriculture in the County has transitioned over the past
century from being dominated by traditional commodity farms growing
tobacco and producing Grade A cow's milk to small farms (49 or fewer acres)
producing a diversity of crops and livestock (Orange County, 2009). According
to the 2022 USDA Agricultural Census (Agricultural Census, 2022), the top three
crops in the County by sales are nursery/greenhouse/floriculture,
grains/oilseeds/dry beans/dry peas, and vegetables/melons/potatoes/sweet
potatoes. Poultry and eggs account for most livestock-related sales. One in five
farms sells directly to customers.
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DRAFT/March 28,2025
Orange County is also home to an increasing number of new and beginning
farmers. Of the 1 199 producers in Orange County in the 2022 Agricultural Census
(data collected for up to four producers per farm), 474 (about 40%) were new
and beginning farmers, an increase from 353 in 2017.
The growing community of small, diversified farms
practicing sustainable agriculture in Orange
County is critical for supporting the County's
2025-2029 Strategic Priorities of Environmental
Protection and Climate Action and for developing
local foodshed resilience.
Established Orange County farmers are passionate about their work and want to
keep their land in farming.
Established Orange County farmers across the spectrum of farm sizes and types
of crops produced are passionate about their roles as stewards of the land and
providers of essential goods and services. Many wish to keep their land in farm
use after they retire. The most common plan for the future of
farmland/forestland in the 2023 Orange County Farmer and Landowner Survey
was transfer to family member(s) for farm use.
Orange County citizens value agriculture and recognize its benefits to the
County, and community members seek food grown sustainably and locally.
Three of four (75%) of Orange County citizens surveyed for input to the County's
2050 Land Use Plan indicated that local farms and agritourism should be the
foundation of the County's regional identity in 2050 (Land Use Plan Feedback,
2024). They also identified farmland stewardship as a core need for the future.
Protecting agricultural/working lands and healthy soils was identified as a most
important environmental need, second only to ensure water sources are clean.
Asked about the type of development/growth desired in the County, 47% cited
family farms. Orange County local farm customer Amy Thomas' views on the
importance of local agriculture and farmland (Box 2) typify those of many of her
fellow citizens.
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DRAFT/March 28,2025
Box 2. Orange County Citizen Amy Thomas
on the Importance of Local Farms and Food
"Local farming is S000 important for many reasons. Here
are just a few that resonate with me;
1)Food grown by trusted local farmers is much fresher,
flavorful,packed with nutrition, and free of potential
contaminants as compared with food that is grown at and
transported over a distance(sometimes a GREAT
distance)to end up in 'super'markets.
2)Food grown locally helps reduce environmental
impacts by reducing the carbon footprint associated
with airplane, truck, and train fuels, (as well as traffic!)
during transportation of products.
3)Local farming equals support of local economies. Period.
In keeping with residents' view of the importance of local agriculture, direct-to-
consumer sales from Orange County farms have increased steadily over the
past decade coincident with growth in market opportunities including farmers
markets, CSAs (community supported agriculture programs), grocery store
cooperatives, intermediated sales, and restaurants (Kelmenson, 2016;
Agricultural Census, 2022).
Orange County citizens surveyed for input to the
County's 2050 Land Use Plan identified protecting
agricultural/working lands and healthy soils as a
most important environmental need.
Local food hubs have operational expertise and capacities in food aggregation
and distribution to support Orange County farmers in expanding their markets.
Local food hubs such as Farmer Foodshare and Happy Dirt house aggregation
and distribution centers within short drives of Orange County farmers, and they
have systems in place for marketing and sales to local and regional institutional
and individual buyers. They offer the potential to expand wholesale market
opportunities for farmers and farmer cooperatives. Food hubs can aggregate,
store, and distribute products from multiple farmers to achieve and distribute
wholesale quantities that individual small farmers cannot achieve on their own.
18
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DRAFT/March 28,2025
5. Goals for Agriculture in Orange County
Building on its assets and strengths, Orange County can minimize continued
farmland loss and foster a thriving agricultural community in which
• Farm viability is enhanced, and farmland is maintained and stewarded for
agricultural uses through judicious land use planning and educational,
logistical, and financial support.
• Citizens and decision-makers have the information and resources they
need to support local agriculture and the farming community.
• Farmers are supported in their livelihoods with educational, financial, and
infrastructural resources.
Studies and experiences of other locales show that Planning FOR Agriculture,
Conserving Farmland through Direct Measures, and Enhancing the Economic
Viability of Agriculture are essential to helping the County realize this vision.
Goal 1: Plan FOR Agriculture
A robust local food and farming community cannot be developed or sustained
if County farmland continues to be lost at the rate described in Section 3 of this
document. Continued farmland loss can be mitigated through proven land use
planning approaches such as smart growth, which emphasizes compact
development, minimization of sprawl, strengthened development in areas
where development has already occurred, and permanent protection of
farmland and open space (Gazillo, 2020; Hunter, 2022). The American Farmland
Trust projects that, in a Better Built Cities scenario employing measures such as
these, farmland loss in Orange County through 2040 can be limited to 6100
acres compared with 14,300 acres with the Business As Usual scenario and
19,900 acres with Runaway Sprawl as described above (Figure 6) (Hunter, 2022).
Figure 6. Projected conversion of Orange County farmland to development through 2040
(Hunter, 2022; American Farmland Trust, 2022)
Business as Usual: Runaway Sprawl: Better Built Cities:
14,300 acres of farmland lost 19,900 acres of farmland lost 6,100 acres of farmland lost
7.
i
J.
f
54 S4
nun,//dm,I,p,e 2040.fa I,,d. g/
19
22
DRAFT/March 28,2025
Land use planning efforts in Orange County---like other counties experiencing
rapid population growth---have historically deprioritized agriculture over other
community needs such as housing and transportation. Further, in land use
planning, farmland has often been conflated with other categories of open
space such as parkland, natural areas, and wildlife habitats. The County can
elevate the importance of agriculture in its land use planning by prioritizing it in
the 2050 Land Use Plan, which is being developed at the time of this writing. If
agriculture is to remain viable---and if the County is to sustain agriculture's
economic, environmental, and cultural benefits and to support a resilient local
food system---the County must plan for agriculture in the same way it does for
other community needs. Planning efforts should be informed by the perspective
that, while farmland can be considered a category of open space, its material,
environmental, and economic contributions distinguish it from other categories
of open space. Thus, farmland protection not only protects open space, it also
facilitates continuance of the material, environmental, and economic benefits
that farmland provides. Accordingly, Goal #1 of this Plan is to Plan FOR
Agriculture: Elevate farmland stewardship to being a central consideration in
land use planning and decisions.
Goal 2: Conserve Farmland Through Direct Measures
The most effective means of protecting farmland are direct measures: namely
permanent agricultural conservation easements (Freedgood, 2020). Orange
County's Lands Legacy program grants and administers conservation
easements in the County as do nonprofit entities such as Triangle Land
Conservancy, Eno River Association, and Working Lands Trust. The County also
administers the North Carolina Department of Agriculture and Consumer
Sciences Voluntary Agricultural District/Enhanced Voluntary Agricultural District
(VAD/EVAD) program, in which farmer/landowners voluntarily protect their land
from non-farm development for a period of at least 10 years. As of 2024, these
programs have permanently conserved 3004 acres of farmland in the County
and enrolled 155 farms comprising 14,864 acres in nonbinding conservation
agreements. These numbers, while encouraging, can be improved. While a
small minority (16%) of respondents to the 2023 Orange County Farmer and
Landowner Survey had their land in a conservation easement, the topic of most
interest for an informational or training session was preserving my land through a
conservation easement (Appendix 1 for summary).
Like agricultural conservation easements, farm transition or estate plans that
provide for continuing operation of farms when owners retire or die are
important tools for farm viability. Most farmers lack such plans (Upendram, 2021).
The majority of Orange County farmers responding to the 2023 Orange County
Farmer and Landowner Survey indicated an intention to keep their land in
agriculture after they retire (Appendix 1 for summary). The most common plan
for the future of farmland upon retirement was transfer to a family member for
20
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DRAFT/March 28,2025
farm use. However, 7 of 10 respondents lacked a documented transition plan or
estate plan.
These findings and considerations highlight the needs to strengthen and expand
County conservation programs and to assist farmers with transition planning.
Accordingly, Goal #2 of this Plan is to Conserve Farmland Through Direct
Measures: Promote the benefits of and strengthen opportunities for farmers to
use direct measures to conserve their farmland.
Goal 3: Enhance the Economic Viability of Agriculture
Viable farm businesses are the foundation of a resilient local food system. Data
from the 2022 USDA Census of Agriculture and the 2023 Orange County Farmer
and Landowner Survey (Appendix 1 for summary) show that farming is not
profitable for the majority of farmers in the County, a finding mirrored in counties
across the state and nationally. Increasing agricultural revenue can set the
stage for continuing to attract new farmers and new capital. New capital in turn
can increase the value of agriculture and contribute to increasing agricultural
revenue (Triangle Farms for Food, 2016).
Enhancing the economic viability of agriculture in the County entails agricultural
development that increases agricultural productivity as well as market
development that increases demand for local agricultural products. Given
these considerations, Goal #3 of this Plan is to Enhance the Economic Viability of
Agriculture through both farmer- and citizen-targeted approaches:
• Provide new business opportunities for farmers through market
development, education, diversification, and cooperation; and
• Increase local demand for Orange County farm products by increasing
awareness of their value and benefits.
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DRAFT/March 28,2025
6. Recommendations and Priority Actions
This section details Recommendations and associated Priority Actions supporting
each of the three Goals outlined in Section 5 of this document.
GOAL #1: Plan FOR Agriculture
Recommendation 1: Assess, document, and communicate the status of
agriculture in Orange County. To effectively Plan FOR Agriculture, decision-
makers require data on farmland conversion and agricultural trends including
those related to economic and extra-economic costs and contributions of
agriculture to the County. Priority Actions 1 a through 1 e provide for the
collection and communication of these data.
• Priority Action 1 a: Assess farmland conversion trends in the County on a
biennial basis through GIS mapping.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
Land cover assessment and map of 0 County staff including new
farmland conversion completed proposed Ag Viability and
biennially Farmland Stewardship position
• Planning Department
• Priority Action 1b: Conduct a biennial County-wide agricultural census.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
County agricultural census distributed Funding required
and summarized every two years
• Priority Action 1c: Complete an Economic Impact Assessment of agriculture
in the County.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Partners identified and recruited Funding required
• Funding secured
• Assessment completed
• Findings summarized and
communicated
• Priority Action Id: Complete anew Cost of Community Services study of
agriculture in the County.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Partners identified and recruited Funding required
• Funding secured
• Assessment completed
• Findings summarized and
communicated
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DRAFT/March 28,2025
• Priority Action le: Communicate farmland conversion trends, County
agricultural census results, and economic data in the biennially updated
Agricultural Viability and Farmland Stewardship Plan and on a County
agriculture web page/website.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• County agriculture website or web County staff including new proposed
page published Ag Viability and Farmland
• Website updated monthly Stewardship position
• County agriculture presence on
social media sites established
• Number of followers on social
media
Recommendation 2: Elevate agriculture to a primary use in land use planning,
regulations, and policy. Priority Actions 2a and 2b provide mechanisms for
ensuring that agriculture is represented among the key County functions and
priorities in land use planning. Priority Actions 2c and 2d provide for
development of policy, guidelines, and regulations that can help mitigate
farmland loss and preserve the County's most productive land for agriculture.
The Prioritization Method of Priority Action 2c (Appendix 2), used in conjunction
with Lands Legacy Program prioritization criteria when appropriate, can help the
County to identify the land best suited for continued agricultural use, prioritize
farms for conservation and other programs, and target farmland stewardship
efforts for best results. For the modifications and additions to County land use
policies and ordinances in Priority Action 2d, a stepwise approach (Appendix 3)
and a reliance on the Avoid-Minimize-Mitigate framework (Figure 7 below) are
recommended. Ample precedents and examples from other locales are
available for modeling agriculture-supportive policy and regulatory
modifications (California Council of Land Trusts, 2014; CALAFCO, 2018; New
England Access Policy Project, 2016).
• Priority Action 2a: On the Planning Board, include an Agricultural Preservation
Board member. On the Agricultural Preservation Board, include a Planning
Board member.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
Establishment of permanent seats on No funding required
the APB by a Planning Board member
and on the Planning Board by an APB
member
23
26
DRAFT/March 28,2025
• Priority Action 2b: Adopt the Agricultural Viability and Farmland Stewardship
Plan as a reference in or a component of the 2050 Comprehensive Plan.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
Agricultural Viability and Farmland No funding required
Stewardship Plan is referenced and/or
included in the 2050 Comprehensive
Plan
• Priority Action 2c: Adopt a Prioritization Method to identify and target
farmland for conservation to be used in conjunction with Lands Legacy
Program prioritization criteria when appropriate. Draft recommendations for
such a Prioritization Method are summarized in Appendix 2.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Prioritization Method drafted No funding required
• Prioritization Method adopted
• Priority Action 2d: Adopt modifications and additions to the Unified
Development Ordinance (UDO) and to County policies to elevate
agriculture to a primary use in land use regulations and policy. Appendix 3
summarizes recommendations for a framework for these modifications and
additions.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Stage 1: Identify and include prime No funding required
farmland areas in the
development concept application
processes that fall under the
umbrella of the UDO.
• Stage 2: Adopt amendments and
modifications to the existing UDO.
• Stage 3: Adopt policy additions
and new ordinances that support
conservation of farmland.
• Stage 4: Adopt agriculture-and
farmland-supportive revisions and
amendments in County policy
areas that impact or are impacted
by agriculture or agricultural policy
(e.g., tax policy, climate policy,
economic development, health
policy).
24
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DRAFT/March 28, 2025
Figure 7. Avoidance-Minimization-Mitigation Framework for Farmland Stewardship (CALAFCO,
2018)
0 "D
Refers to steering growth away from agricultural lands
U +rte— using options such as an alternative project location or
a smaller scale project in order to avoid conversion of
W LL agricultural lands_This is the best stratMwhen there
L Avoid isavailahiIity of vacant or underutilized lands within
o 0 existing boundaries and there is no demommned
need for expanding boundaries based on more
Impacts efficient development patterns..
Refers to considering alternatives in the Iccatian,
seting and scale of a project;utilizing design features
such as agricultural buffers,and for adopting
regulations such as Rightto Farm ordinances,in order
to minimize conversion and impacts on/conflicts
Minimize —,i with,agricultural operations or uses.This strategy is
used to maximize preservation when there are
Impacts significant constraintsto entirely avoiding impacts.
Refers to measures meant toorrrpensate for the
W Q) conversion of agricultural lands,such as dedication of
agricultural ronservation easements,payment of in-
Ca +- lieu fees,or purchase and transfer of agricultural
Mitigate lances,tc an agrltultural conservatlan entity,This
W CL strategy is used as a last rasort and only whe
Urj t/yi efforts to avoid and minimize conversion of
in 03 agricultural lands have been exhausted.
tU
J J
GOAL #2: Conserve Farmland Through Direct Measures
Recommendation 3: Increase the rate at which Lands Legacy Program
conservation easements are granted. The Lands Legacy Program maintains a list
of landowners seeking to put their land in a conservation easement. Priority
Actions 3a and 3b are intended to mitigate the impact of two (of the several)
factors that contribute to the length of time to complete easement agreements:
insufficient or uncertain funding and County bureaucratic requirements.
25
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DRAFT/March 28,2025
• Priority Action 3a: Increase the funds available for County purchase of Lands
Legacy Program conservation easements.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Source of funding agreed Funding required
• Funding secured
• Increase in annual number of
agricultural working lands
easements granted
• Priority Action 3b: Identify and implement new/additional frameworks for
County collaboration with non-County conservation organizations (e.g.,
Triangle Land Conservancy, Eno River Foundation) to secure easements.
Explore the possibility of reactivating the Orange County Conservation
Alliance, which provided a forum for collaboration to develop joint projects
or partnerships.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Increase in annual number of Funding required
collaborative agricultural working
lands easements granted
• Orange County Conservation
Alliance reactivated
Recommendation 4: Use the VAD/EVAD (Voluntary Agricultural
District/Enhanced Voluntary Agricultural District) program as a steppingstone to
permanent Lands Legacy Program conservation easements.
Farmers/landowners enrolled in the VAD/EVAD program have made a
voluntary, nonbinding commitment to keep their land in farming and out of
development for a period of at least 10 years. Respondents to a 2022 Orange
County VAD/EVAD Farmer and Landowner Survey expressed interest in
permanent protection of their land through a conservation easement, but to
date, few VAD/EVAD farmers/landowners have conservation easements in
place. Having demonstrated commitment to protecting their farmland,
VAD/EVAD farmers are particularly good candidates for easement-related
outreach and education. Priority Actions 4a through 4c are intended to
educate County farmers/landowners about conservation options and to reward
and incentivize VAD/EVAD farmers/landowners seeking to learn about and/or
pursue permanent conservation easements.
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DRAFT/March 28,2025
• Priority Action 4a: Intensify VAD/EVAD recruiting efforts through direct mail,
County website, direct outreach, and Agricultural Preservation Board
member engagement.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Increase in annual number of County staff including new proposed
VAD/EVAD enrollees Ag Viability and Farmland
• Increase in VAD/EVAD acreage Stewardship position
(annual)
• Priority Action 4b: Encourage farmers in the VAD/EVAD program to
participate in a conservation easement workshop, and incentivize
enrollment.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Conservation easement workshop Funding required
held annually
• Number of VAD/EVAD farmer-
participants in workshop
• Priority Action 4c: Fund complimentary easement-related legal and financial
consulting for VAD/EVAD landowners considering putting their land in a
conservation easement.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Number of VAD/EVAD farmers Funding required
taking advantage of legal
consulting
• Number of VAD/EVAD farmers
entering into conservation
easements
Recommendation 5: Provide farmers with education and resources on transition
planning and farmland conservation. The majority of Orange County
respondents to the 2023 Orange County Farmer and Landowner Survey indicate
a desire to keep their land in farming and an interest in learning about measures
to conserve their farmland (Appendix 1 for summary). However, 7 in 10 lack a
documented transition plan, and very few farms have land in conservation
easements. Priority Actions 5a through 5c provide mechanisms for facilitating
transition planning and conservation of farmland including forestland.
Priority Action 5c provides a mechanism for encouraging conservation and
management of forestland, an important carbon sink (Hurteau, 2021). More
than half of the County's 256,000 acres is forested. The more forestland is
preserved, the more the County's potential to sequester carbon in the interest of
mitigating the impacts of climate change.
27
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DRAFT/March 28,2025
Priority Action 5d provides a framework for County-facilitated education and
assistance customized to individual farmers' goals and plans. Farmers'
willingness to sell their land varies depending on factors such as financial need
and personal values. Each Orange County farm/farmer is unique with respect to
these factors. Some farmers are unwilling to sell their land for development at
any price. For others, financial considerations can outweigh the desire to keep
their land in farming---particularly in the context of the high land prices in the
County. An understanding of where each farm in the County stands with
respect to stewardship goals and transition planning will help the County to
customize approaches to conserving farmland and to keeping it actively
farmed.
• Priority Action 5a: Fund complimentary transition planning consulting to
VAD/EVAD landowners and farmer-landowners holding Lands Legacy
Program conservation easements.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Number of farmers/landowners Funding required
taking advantage of transition
planning consulting
• Number of farmers/landowners
with transition plans (a) initiated;
b completed
• Priority Action 5b: Convene an annual Transition Planning/Estate Planning
summit for County farmer-landowners.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Transition Planning/Estate Planning Funding required
summit convened annually
• Annual increase in number of
farmers/landowners with transition
plans (a) initiated (b) completed
• Priority Action 5c: Educate owners of forestland about the benefits to the
environment and the climate of conserving forestland and the financial
benefits of managed forestland.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Annual increase in number of 0 County staff including new
farmers/landowners with forest proposed Ag Viability and
management plans Farmland Stewardship position
• Annual increase in number of 9 Agricultural Preservation Board
farmers in forestry PUV members
• Annual increase in number of Orange County Extension agents
acres of forestland permanently
conserved
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DRAFT/March 28,2025
• Priority Action 5d: Conduct a County-wide outreach program to better
understand farmer and landowner perspectives on transition planning to
support customized approaches to transition planning and conservation.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Number of farmers/landowners County staff including new
contacted for inclusion in the proposed Ag Viability and
database Farmland Stewardship position
• Number of farmers/landowners Agricultural Preservation Board
with data represented in the members
database Orange County Extension agents
• Number of farmers/landowners
initiating transition or conservation
tans as a result of outreach
Recommendation 6: Establish an Agricultural Viability and Farmland Stewardship
coordinator role in the County. Currently in Orange County, the duties and
responsibilities related to agricultural viability and farmland stewardship are
divided among several staff members, all of whom have other primary job
responsibilities. As illustrated by the Priority Actions outlined in this Plan, the needs
related to agriculture in the County are sufficiently numerous and wide-ranging
to justify a County staff position dedicated to agricultural viability and farmland
stewardship. Other North Carolina counties, including Chatham County and
Wake County, have a staff member dedicated solely to agricultural
development and farmland protection.
• Priority Action 6a: Define the duties of the coordinator role with attention to
complementing and synergizing with the duties of the County's Land
Conservation Manager position.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
Job description completed and 0 County staff
approved 0 County Extension agent
• Priority Action 6b: Assign the position a place in the County organizational
structure and allocate funding for it.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Funding secured Funding required
• Job posted
• Position filled
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DRAFT/March 28,2025
GOAL #3: Enhance the Economic Viability of Agriculture
Recommendation 7: Expand educational opportunities in agriculture and
agricultural business development. The changing nature of agriculture in the
County from traditional commodity farms to small, diversified farms and the
increasing population of beginning farmers in the County necessitate provision
of education and training to help both new and established farmers thrive.
Priority Action 7a provides a mechanism for education and training in a
program that emulates and expands the successful PLANT at Breeze program
previously offered by Orange County.
• Priority Action 7a: Offer both new- and established-farmer-targeted
coursework and bootcamp with curriculum to include business development,
agritourism, crop production, livestock management, marketing.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Program developed and launched • County staff including new
• Number of participants enrolled proposed Ag Viability and
• Number of participants Farmland Stewardship position
completing the program 0 County Extension agents
• Number of participants
completing the program and
going on to farm
• Participant ratings of program
Recommendation 8: Support farmers in expanding and diversifying their
businesses through agritourism. Agritourism, or welcoming visitors to the farm for
recreation, education, and/or purchasing farm products, is a means of
diversification and potentially significant income generation (UC Sustainable
Agriculture Research and Education Program, 2017). In the 2023 Orange County
Farmer and Landowner Survey (Appendix 1 for summary), agritourism was cited
nearly two times more often than any other measure as a way respondents
would consider to enhance their farm business. Besides being a source of direct
financial gain for farms, agritourism benefits farms by fostering customer
relationships and enhancing customers' understanding of agriculture---non-
material impacts that can lead to sustained financial support. In the 2023
Orange County Farmer and Landowner Survey, only one of three respondents
indicated that they practice any form of agritourism on their farm. Priority
Actions 8a and 8b are intended to introduce farmers to agritourism in its various
forms and to support them in exploring agritourism initiatives.
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DRAFT/March 28,2025
• Priority Action 8a: Form a County Agritourism Networking Group for peer-to-
peer agritourism education and support.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Agritourism Networking Group County Extension agent
formed
• Number of participants
• Participant ratings
• Priority Action 8b: Incorporate an agritourism module into the new and
beginning farmer education program (Priority Action 7a).
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
Module completed and launched 0 County Extension agent
• County staff including new
proposed Ag Viability and
Farmland Stewardship position
Recommendation 9: Support farmers in efforts to expand into wholesale markets.
Agriculture in Orange County is evolving toward a preponderance of small,
diversified farms selling directly to the customer. Although Orange County has a
sizable customer base buying directly from farmers through outlets such as
farmers markets and CSAs, direct-to-customer sales alone are insufficient to
support profitability of many of these farms. Wholesale selling to institutional
buyers such as schools and hospitals can help increase profitability. However,
most small farms do not sell wholesale because of factors including wholesale
buyers' reluctance to contract directly with small farms, insufficient volume of
product, and lack of food safety certification (Good Agricultural Practices, or
GAP certification) required by most wholesale buyers. Priority Actions 9a through
9d provide mechanisms for addressing these challenges. Local food
aggregators/distributors such as Farmer Foodshare have the expertise, systems,
and infrastructure to support Priority Actions 9b and 9c. A local-hub-supported
farm-to-school program (Priority Action 9b) is being run successfully in Durham
County.
• Priority Action 9a: Educate farmers about the benefits of, and provide
funding for, their GAP certification.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Number of GAP educational 0 County staff including new
sessions conducted proposed Ag Viability and
• Number of farmers completing Farmland Stewardship position
GAP certification training 0 County Extension agent, Carolina
Farm Stewardship Association
31
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DRAFT/March 28,2025
• Priority Action 9b: Fund and implement a farm-to-school pilot program to get
food from Orange County farmers into Orange County Public Schools.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Partners identified and recruited 0 County staff including new
• Pilot funding secured proposed Ag Viability and
• Pounds of County-sourced fresh Farmland Stewardship position
food going to the program 0 County Extension agent
• $paid to Orange County farmers 0 US Department of Agriculture
through pilot program
• School and student survey ratings
of pilot program
• Priority Action 9c: Provide opportunities for aggregation, sale, and distribution
of Orange County farm products to County and NC-wide markets through
collaboration with a local food aggregator/distributor.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Parameters of program agreed County staff including new
with local food proposed Ag Viability and
aggregator/distributor Farmland Stewardship position
• Number of Orange County farmer County Extension agent
participants
• Pounds of County-sourced food
sold through program
• $paid to Orange County farmers
through program
• Priority Action 9d: In collaboration with the NC Department of Agriculture
and in consultation with Tri-COG FEEDS (Food Ecosystem Economic
Development Strategy), conduct a feasibility study for a regional market and
aggregation/distribution center in the vicinity of 1-40/1-85.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Collaborators identified and 0 County staff including new
recruited proposed Ag Viability and
• Funding secured Farmland Stewardship position
• Study completed 0 County extension agent
• Results summarized and 0 NC Department of Agriculture,Tri-
communicated COG FEEDS
Recommendation 10: Provide citizens and decision-makers with information and
education on agriculture in Orange County and with opportunities to engage
with the farming community. While a segment of Orange County community
members and decision-makers advocate and support local farms and food,
Orange County is not exempt from the larger societal trends of disconnection of
citizens from the sources of their food and a decline in understanding of farming
and food production. Community members and decision-makers who are
knowledgeable about the need for and benefits of farmland and local food
32
35
DRAFT/March 28,2025
production are likely to buy local farm products and to support stewardship of
local farmland. Priority Actions 1 Oa through l Od provide mechanisms for
enhancing community members' and decision-makers' awareness and
understanding of the contributions of agriculture in Orange County.
• Priority Action 10a: Update the Agricultural Viability and Farmland
Stewardship Plan biennially, and present and discuss the update at a Board
of County Commissioners meeting dedicated to agricultural viability in the
County.
BENCHMARK/PROGRESS INDICATORSFUNDING/RESOURCES
• Plan update issued biennially No funding required
• BOCC meeting conducted
biennial)
• Priority Action 10b: Publicize and communicate about Orange County
agriculture through an Agriculture web page or website, social media, and
other electronic means.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• County agriculture website or web County staff including new proposed
page published Ag Viability and Farmland
• Website updated at least monthly Stewardship position
• County agriculture presence on
social media sites established
• Number of followers on social
media
• County agriculture electronic
newsletter circulated monthly
• Number of subscribers to
newsletter
• Priority action 10c: Convene a periodic agricultural festival for the public.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Festival held County staff including new proposed
• Number of attendees Ag Viability and Farmland
• Attendee ratings or feedback Stewardship position
• Priority action 10d: Expand the County Farm-to-Table event for fourth graders
to reach more children.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Event held County staff including new proposed
• Number of attendees Ag Viability and Farmland
• Attendee ratings or feedback Stewardship position
In current DEAPR budget
33
36
DRAFT/March 28,2025
Recommendation 11: Offer financial incentives for agriculture and agricultural
development in the County. Skyrocketing land prices and high infrastructure
costs in Orange County discourage and prevent new farmers from farming and
impel established farmers to sell farmland for development. Direct financial
incentives for agriculture are necessary to help counteract these deterrents.
County programs in place include a) the Present-Use Value Property Tax
Program with reduced tax rates for land in agriculture and related uses; b)
economic development programs such as Agricultural Economic Development
grants; and c) the Breeze Farm Incubator, which provides new and aspiring
farmers with access to land, tools, infrastructure, and services in an arrangement
that minimizes the start-up capital need to start a small farm. Priority Actions 11 a
through 11 d provide mechanisms for enhancing and expanding these
opportunities.
The Priority Actions below are restricted to those that can be implemented at
the County level (although the PUV pilot program described in 11 d would
require State approval). Additional financial incentives requiring State approval
and/or financial support should be explored in parallel with these County-level
efforts.
• Priority Action 11 a: Broaden eligibility criteria for Agricultural Economic
Development grants to include agricultural support entities (e.g., NC
FarmLink, Farmer Foodshare), and allow flexibility in awarding grant funds
across three categories of recipient (new farmers, established farmers,
agricultural support entities).
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Grant criteria revised and Funding required
publicized
• Number of applicants per year in
each recipient category
• $awarded per year to each
recipient category
• Priority Action 11 b: Fund new-farmer-startup grants and develop tax credits
to assist qualified new farmers with purchase of farmland.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Funds secured 0 County staff including new
• Criteria for grant award proposed Ag Viability and
established Farmland Stewardship position
• Grant awarded 0 County Extension agent
• Funding required
34
37
DRAFT/March 28,2025
• Priority Action 11 c: Identify and establish property tax incentives to support
farm sustainability.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Tax incentives identified Funding required
• Criteria for qualifying farms
established
• County agreement to offer tax
exemption obtained
• Number of farms applying for
exemption
• Number of farms granted
exemption
• Priority Action 11d: Conduct a multi-County pilot program to reduce the
acreage requirement of the Present Use Value Program to 1 acre.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Assessment of farmer interest 0 County Extension agent
completed 0 County staff including new
• Collaborating counties recruited proposed Ag Viability and
• State permission to conduct pilot Farmland Stewardship position
granted 0 Collaborating counties
• Number of farms enrolling in PUV
as result of meeting new criteria
35
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DRAFT/March 28,2025
7. Potential Sources of Funding
This section describes the potential funding sources associated with Priority
Action Steps outlined in Section 6 of this document. This list is not exhaustive.
7. 1. Taxes
Deferred Taxes from Farmland Coming Out of the Present Use Value Program
Properties in the Present Use Value program coming out of agricultural use are
subject to deferred taxes with accrued interest, immediately due and payable,
for the year of disqualification and the three previous years. Revenue generated
from these tax dollars could be directed to an Agricultural Trust Fund. Similar
successful programs are currently operating in Cabarrus County, Chatham
County, and Wake County.
Land Transfer Tax
North Carolina counties have the ability, granted by the North Carolina General
Assembly, to levy a tax on the sale of real property. For Orange County, the tax
can amount to 0.4% of the sale price of real estate levied in the year of the sale.
To be implemented, the tax must be approved by a majority vote of citizens.
7.2. Grants
Agricultural Development and Farmland Preservation Trust Fund.
The material below is quoted from https://www.resilienceexchange.nc.gov/find-
funding/funding-database/agricultural-development-farmland-preservation-
trust-fund
The NC Agricultural Development and Farmland Preservation Trust Fund (ADFP),
administered by the NC Department of Agriculture and Consumer Services (NC
DA&CS) Division of Farmland Preservation, provides funding for preservation of
farming, forestry, and horticulture industries in North Carolina. ADFP promotes
sustainable farming through the purchase of agricultural conservation
easements, conservation agreements and the funding of public and private
enterprise programs that assist farmers in developing plans to maintain
sustainable and profitable food production and marketing activities.
Golden Leaf
The material below is quoted or paraphrased directly from
https://goldenleaf.org: The Golden LEAF Foundation, a North Carolina grant-
making organization, helps eligible state, regional and local economic
development entities with job creation projects in tobacco-dependent or
economically distressed areas of the state. Golden LEAF offers three grant
programs that can address infrastructure needs.
36
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DRAFT/March 28,2025
NC Tobacco Trust Fund
The material below is quoted directly from httr)s://tobaccotrustfund.org/: The
NC Tobacco Trust Fund funds projects that address one or more of the following
goals:
• Alleviating and avoiding unemployment in the tobacco-related sector of
the state's agricultural economy
• Preserving and increasing the local tax base in agricultural areas
• Encouraging the economic stability of participants in the state's
agricultural economy
• Optimally using natural resources in the tobacco-related segment of the
state's agricultural economy
• Supporting and fostering the vitality and solvency of a tobacco-related
sector.
Orange County Farm Bureau
The Orange County office of the North Carolina Farm Bureau has indicated its
willingness to allocate funds to assist with agricultural viability and farmland
stewardship projects undertaken by the County's Agricultural Preservation
Board.
37
40
DRAFT/March 28,2025
8. References
Adelaja A, et al. Endogenizing the planning horizon in urban fringe agriculture. Land Use
Policy 2011;28:66-75.
Agricultural Census, 2022. USDA census of agriculture. US Department of Agriculture,
National Agricultural Statistics Service. Available at:
https://www.nass.usda.gov/Publications/AgCensus/2022/Full Report/Volume 1, Chapt
er 2 County Level/North Carolina/
Agricultural Trade Multipliers, 2024. USDA Economic Research Service. Available at:
https://www.ers.usda.gov/data-products/agricultural-trade-multipliers/.
American Farmland Trust, 2022. Farms under threat mapping tool and state summaries.
2022. Available at: https://development2040.farmland.org/
Burchfield EK, et al. The state of US farm operator livelihoods. Front Sustain Food Syst
2022;5: article 795901 .
CALAFCO. State of the Art on Agricultural Preservation. CALAFCO White Paper.
February 2018. Available at:
mendolafco.org/files/485edbca3/CALAFCO_AFT+White+Paper+on+Ag+Preservation_F
e b+2018%28R EV%29.pdf
California Council of Land Trusts. Conserving California's harvest: a model mitigation
program and ordinance for local governments. 2014. Sacramento, CA. Available at:
https://calandtrusts.org/resources/conserving-californias-harvest/
Chao K. Family farming in climate change: Strategies for resilient and sustainable food
systems. Heliyon 2024;l O:e28599.
Freedgood JM, et al. Farms under threat: The state of the states. Washington, DC:
American Farmland Trust, 2020. Available at: https://farmlandinfo.org/wp-
content/uploads/sites/2/2020/09/AFT FUT StateoftheStates_rev.pdf
Gazillo C, et al. Planning for agriculture: a guide for Connecticut municipalities. 2020
edition. A publication of American Farmland Trust and Connecticut Department of
Agriculture. Available at: https://communityfoodstrategies.org/wp-
content/uploads/2014/03/cfa-report_final.pdf
Hunter MA, et al. Farms under threat 2040: choosing an abundant future. Washington,
DC: American Farmland Trust, 2022.
Hurteau MD. Chapter 27---The role of forests in the carbon cycle and in climate
change. Climate Change, 3rd edition. Elsevier, 2021.
Kelmenson S, et al. Orange County baseline community food assessment. 2016.
Available at: https://communityfoodstrategies.org/wp-content/uploads/2014/03/cfa-
report_final.pdf
38
41
DRAFT/March 28,2025
Land Use Plan Feedback. Orange County Land Use Plan 2050. Community
engagement window #1 : confirming community aspirations. 2024. Available at:
https://www.orangecountylanduseplan.com/resources
Naresh RK, 2023. Re: What is sustainable agriculture how it can help in environmental
protection to ensure food security in climate resilient agriculture?. From:
https://www.researchgate.net/post/What is sustainable agriculture how it can help i
n environmental protection to ensure food security in climate resilient agriculture/6
512d2cd4b43fcb3270419ba/citation/down load.
New England Access Policy Project, 2016. Policy options for strengthening farmland
mitigation in Massachusetts and other New England States. Available at:
https://Iandforgood.org/wp-content/uploads/LAPP-Policy-Options-For-Strengthening-
Farmland-Mitigation-in-Massachusetts-and-other-New-England-states.pdf.
North Carolina Forest Service. 2022 forestry contributions, Orange County, NC. Available
at:
North Carolina General Statutes. Article 62. Agricultural Development and Preservation
of Farmland. Available at:
https://www.nclea.aov/EnactedLegislation/Statutes/PDF/ByArticle/Chapter 106/Article
61 .pdf.
NC State University, 2019. NC State University College of Agriculture and Life Sciences.
Economic contribution of North Carolina agriculture and agribusiness. Available at:
https://www.ces.ncsu.edu/wp-content/uploads/2019/10/Economic-Contribution-
Value-of-N.C.-Agriculture-Booklet_CALS-NC-State-Extension.pdf?fwd=no
MacFall J, et al. Toward resilient food systems through increased agricultural diversity
and local sourcing in the Carolinas. J Environ Stat Sci 2015;5:608-622.
Orange County, 2009. Orange County Agricultural Development and Farmland
Protection Plan. Adopted November 17, 2009.
Orange County, 2024. Orange County North Carolina Strategic Plan FY2025-2029.
Available at:
https://www.orangecountync.gov/DocumentCenter/View/26972/Orange-County-
Strategic-Plan?bidld=
Perrin C, et al, 2020. Preserving farmland on the urban fringe: a literature review on land
policies in developed countries. Land 2020, 9(7), 223;
https://doi.org/10.3390/land9070223
Pretty J. Agricultural sustainability: concepts, principles and evidence. Phil Trans R Soc B
2008;363: 447-465.
Renkow M. The cost of community services in Orange County. January 2006. Available
at: https://www.ces.ncsu.edu/wp-content/uploads/2019/10/Economic-Contribution-
Value-of-N.C.-Agriculture-Booklet CALS-NC-State-Extension.pdf?fwd=no
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UC Sustainable Agriculture Research and Education Program. 2017. Agritourism. What is
Sustainable Agriculture? UC Division of Agriculture and Natural Resources. Available at:
https://sarep.ucdavis.edu/sustainable-ag/agritourism
Triangle Farms for Food. Triangle Farms for Food Strategy + Action Plan. November 2016.
Conservation Trust for North Carolina and Community Food Lab. Available at:
https://ctnc.org/wp-content/uploads/2019/06/2017-1 1-29-F4F-FINAL rev l.pdf
Upendram S, et al. Chapter 1: why succession planning? University of Tennessee
Extension Institute of Agriculture. 2021 . Available at:
https://utia.tennessee.edu/publications/wp-
content/uploads/sites/269/2023/10/SP822A.pdf
US Code of Federal Regulations, 2024. Part 657. Prime and unique farmlands. Available
at: https://www.ecfr.gov/current/title-7/subtitle-B/chapter-VI/subchapter-F/part-657
USDA, 2023. US Department of Agriculture, National Agricultural Statistics Service. 2023
North Carolina agricultural statistics. Available at:
https://www.nass.usda.aov/Statistics by State/North Carolina/Publications/Annual Sta
tistical Bulletin/AgStat/NCAgStatBook.pdf
USDA Economic Research Service, 2024. Farming and farm income. Available at:
https://www.ers.usda.gov/data-products/ag-and-food-statistics-charting-the-
essentials/farming-and-farm-income/.
Walden ML. Economy-wide impacts of agricultural sectors in North Carolina. May 2014.
Available at: https://cals.ncsu.edu/agricultural-and-resource-economics/wp-
content/uploads/sites/46/2017/07/Economy-Wide-Impacts-of-Agricultural-Sectors-in-
North.pdf
Walinga D. Today's food system: how healthy is it? J Hunger Environ Nutrition 2009,251-
281 .
WeConservePA, 2024. Cost of community service studies. Available at:
https://Iibrary.weconservepa.org/guides/15-cost-of-community-services-studies.
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Appendix 1 . Summary of 2023 Orange County Farmer/Landowner Survey
ORANGE COUNTY FARMER/LANDOWNER SURVEY
• Emailed to 366 CALLING ORANGE COUNTY FARMERS AND
County FOREST OREST PRODUCERS!
in Oct 2023 FARMER&ANDOwNERSURVEY
• Survey closed on Your Agricultural Preservation Board requests your help in updating the County's Agricultural Preservation and
Nov 17, 2023 with Farmland Protection Plan,which describes the challenges and opportunities for agriculture and forestry in the
County,outlines a vision forthe future,and defines action steps to achieve that vision.Please complete this
92 respondents survey to provide vital information that will shape the Plan.
1
The most common descriptors of respondents are
farmer/producer, agricultural landowner, forest landowner.
Which of these categories describes you?
92 responses
Farmer/producer 61 (66.3%)
Agricultural landowner —47(51.1%)
Forest landowner 44(47.8%)
Producer: livestock 31 (33.7°/x)
Producer: produce/row crops 21 (22.8%)
Producer:eggs 16(17.4%)
Producer:dairy —4(4.3%)
Producer:greenhouse —9(9.8%)
Producer: agritourism 11 (12°/fl)
Producer:ornamental trees... 1 (1.1%)
Honeybees and honey 1 (1.1%)
beekeeper 1 (1.1%)
Horse farm —2(2.2%)
Nursery owner 1 (1.1%)
Producer. honey bees -1 (1.1%)
Producer honey and honeyb... —1 (1.1%)
0 20 40 60 80
Number(%)of respondents
2
41
44
Most respondents (73%) are 48 years or older.
What is your age?
90 responses
35 33
30
C
0 25
C
Q 20 20
N
15 13
12
10
W
5
0 0 1
[0,121 (12,24] (24,361 (36,481 (48,601 (60,721 (72,841 (84,961
Age(range)
3
Farming/forestry is not the main source of income
for most respondents (70%).
is farming/forestry your (or your family's) main source of income?
91 responses
• Yes
No
i
4
42
45
Agritourism does not contribute to farm income
for most respondents (68%).
Does agritourism (visitors to the farm for recreation, education, or purchasing farm products)
contribute to your farm income?
91 responses
49 Yes
• No
5
The most frequently cited challenges to making a living by farming
in the County are small profit margins and high cost of land.
Select the most important challenges to making a living by farming in Orange County.
91 responses
Other 9
Changing weather patterns � 17
Governmental regulations 25
High cost of land 56
Conversion of farmland to residential use 42
Lack of available land 1 21
Small profit margins 57
Inability to obtain financing 4
High cost of agricultural supplies 40
High cost of agricultural equipment 37
Lack of labor 31
High labor costs 37
Poor access to markets for selling my...� 12
Lack of agricultural support businesses 9
0 10 20 30 40 50 60
#respondents
6
43
46
Respondents overwhelmingly consider the most important threat to
farming in Orange County to be development.
What do you perceive as the most important threats to agriculture/forestry in Orange County?List up to three
threats.
85 responses
Development 60
Cost of land (13)
Cost of infrastructure (12)
Taxes (12)
Inflexible regulations (9)
Climate change (9)
New generations not taking up farming(5) H{{
All other threats were listed by fewer than 5 respondents.
7
"As farmers age out and are dying, "Encroaching urban areas, "Housing development.This...leads
their heirs are selling land to cash farmland/forest land being sold to to increased cost of land and
out on its purchase value to developers for multi-family homes decreased value of land for
developers.More housing and multi-family developments agricultural purposes.There's a lot
complexes are being built on instead of being kept in
farmland while we are losing our farm/forest" more money in selling the land for
resources for soil,foodshed,and 5-10 acre lots than keeping it as an
farms.This will create a crisis for [D]evelopment,particularly
intact farm.None of the land I see
both our environment and local
sprawling development that
ecosystem as well as for food encourages large(io acre) for sale around me is selling as
production and water retention and lots. The county development farmland.It's simply not worth it.
filtering.We need to stop policies should encourage It's subdivided into plots and houses
developing every square inch of the clusters of homes leaving a
county!It took me 20 years of large percent of open space are built.This leads to ecosystem
working two jobs and investing to rather than making it easy to deterioration which decreases the
scrape together a down payment for develop to acre lots,S acre quality of farmland as well.I'm in
my small little farm.It should not lots. The problems of sprawl
be like this.There needs to be more in our county are the far northern reaches of the
done to save our farmland and COMPLETELY predictable county....This is not isolated
counteract incentives to sell to based on the policies in place towards the southern more urban
developers." currently."
parts of the county.„
s
44
47
The most common plan for the future of farmland/forestland is
transfer to family member(s) for farm use.
What are your plans for the future of your farm/forestland upon your retirement?
90 responses
Other - 7
Undecided - 13
Put the land in an agricultural working lands - 19
easement
Sell or transfer for conservation(through
10
easement) _
Transfer to family member(s)for farm use 48
Transfer to family member(s)for non-farm use — 12
Sell for development/non-farm use -5
Sell for farm use _ 11
0 10 20 30 40 50 60
#respondents
9
7 of lo respondents lack a documented farm transition
or estate plan.
Do you currently have a documented farm transition plan and/or a documented estate plan?
92 responses
0 Yes
No
10
45
48
Do you know what a conservation easement is?
91 responses
•Yes
Most respondents (84%) .No
know what a
conservation easement
is, but few of them (1 6%)
have farmland or
Do you have farmland or forestland enrolled in a conservation easement?
forestland in a
92responses
conservation easement. 0 Yes
0 No
0 Don4know
11
The topics of most interest for an info session or training are
preserving my land through a conservation easement, ways to
diversify my operation, and transition planning.
From the list below,check the topics about which you would attend an information session or
training.
77 responses
Farming/forest management in a changing climate 27
Forest management/developing a forest management... 18
Developing/revising a business plan 25
Transition planning 31
Preserving my land through a conservation easement 35
Marketing myfarm products directlyto the customer 21
Agritourism 25
Ways to diversify my farm/forest income 33
0 5 10 15 20 25 30 35 40
#respondents
12
46
49
The most common measure respondents would consider for
enhancing their agricultural business is agritourism.
From the list below,check the measures you would consider implementing to enhance or expand
your agricultural business.
76 responses
Other - 10
Leasing land for hunting/fishing - 18
Leasing land for cell phone tower 22
Solar farming with associated ag production 25
Solar farming without associated ag...- 14
Farmer-supported limited development* - 15
On-farm housing(for family,workers,visitors) 25
Agritourism 43
0 5 10 15 20 25 30 35 40 45 50
If respondents
"development of less productive portions of farmland while maintaining agricultural operation
13
Respondents consider the most important opportunity for
farming in Orange County to be cooperative arrangements.
What do you perceive as the most important opportunities for growing and/or diversifying agriculture in Orange County?
List up to three opportunities.
53 responses
11 respondents listed cooperative arrangements.All other opportunities were listed by<5 respondents.
"Opportunity for shared professional "Distr[ijbution networks that "Creating another facility for
kitchen spaces affordable for small purchase directly from small producing value-added farm
batch production so we can get farmers"
products,because the existing
started producing and selling without one is booked 24/7/365."
significant startup costs"
"Decentralized private "I'm in the non-commodity livestock
food hubs/farmer owned business.I sell my meat direct to
"Investment in infrastructure and cooperatives" consumers and to other businesses
projects that support small farmers which sell my meat direct to their
and local food systems--food customers.I think for too long farmers
hubs,processing centers,farmer "food cooperative" in my sector have been focusing on
cooperatives" what they,as individuals,can produce
and sell.I think we need to start
thinking more collectively and pool our
resources."
14
47
50
DRAFT/March 28,2025
Appendix 2. Recommendations for Criteria for Identifying Farmland for
Protection in Orange County
Overview
The foregoing Orange County Agricultural Preservation Board (APB) Farmland
Stewardship Subcommittee recommendations for criteria for identifying
farmland for protection in Orange County are intended to inform land use
planning decisions in the County. The recommended criteria constitute a simple,
objective, easily applied framework for identifying the resource to be protected.
The framework lends itself to supplementation, when needed, with secondary
farm-unit-based criteria that can guide development of specific land use
policies and administration of farmland stewardship programs.
Background
In formulating its recommendations, the Subcommittee reviewed various
county, state, and national frameworks for identifying and prioritizing agricultural
land for protection. Two approaches to framing agricultural land protection
were identified: resource based and farm based. The resource-based approach
centers on protecting the land that is best for farming (i.e., the soil resource). In
the resource-based approach, agricultural lands are designated for protection
based on measures or assessments of the suitability of the soil for agriculture---for
example, the National Resource Conservation Service (NRCS) "Prime Farmland"
and "Farmland of Statewide Importance," the NRCS Land Capability Classes,
and the American Farmland Trust's Productivity/Versatility/Resilience index
(PVR). The farm-based approach centers on protecting the total (individual)
farm unit, which in addition to its association with the soil resource has
geographic, historic, ecological, and cultural characteristics that affect its
conservation value. In the farm-based approach, agricultural lands are
designated for protection based on the suitability of the soil for agriculture as
well as additional measures or assessments such as tract size, development
pressure, adjacency to developed areas, presence of or adjacency to critical
environmental areas or unique natural resources, adjacency to other protected
land including wildlife habitat, adjacency to other farmland, and potential for
climate-change mitigation.
The APB recommends adopting a resource-based approach based on
agricultural suitability of the soil to guiding County land use decisions and
policies involving farmland. A resource-based approach delineates highly
productive farmland more effectively than a farm-based approach: The
agricultural productive capacity of rural landscapes varies depending on
geology, soils, and topography. Each farm is a unique combination of these
characteristics with landscape units that can range from highly productive to
nonproductive farmland. Furthermore, the resource-based approach lends itself
to objective, durable land use decisions that are less easily supported by a farm-
48
51
DRAFT/March 28,2025
based approach that considers cultural criteria such as ownership, farm size and
type, and location.
While the APB favors a resource-based approach over a farm-based approach
as a framework for guiding land use decisions and policies, a farm-based
approach that considers secondary criteria in addition to soil quality might be
most appropriate for guiding administration of farmland protection programs.
Recommendations
The APB recommends that County land meeting the following criteria be
designated as most important to protect for agriculture through policies and
practices including avoidance, minimization, and mitigation:
• The land is Prime Farmland* as defined by the US Department of
Agriculture (USDA). Agricultural lands are designated for protection based
on soil type and slope determined from soil map units in the Orange
County Soil Survey (which may be further verified by field determination).
A soil map unit in the Orange County Soil Survey comprises a specific soil
type and a slope modifier (e.g., Georgeville soil on slopes of 2-6%). The
following map units indicate Prime Farmland conditions:
o HrB Herndon
o CfB Cecil
o CrB Creedmoor
o EnB Enon
o HeB Helena
o VaB Vance
o ApB Appling
o GeB Georgeville
o HwB Hiwassee
o Aa Altavista
o HhA Helena-Sedgefield
• The land has <8% slope.
• The land is not developed (as specified in the definition of Prime Farmland)
and is outside the municipalities and the Extraterritorial Jurisdictions.
Prime Farmland is a widely recognized and understood designation with
extensive historic and current precedent as a primary criterion for delineating
agricultural land for protection. It is among the criteria in the Orange County
Lands Legacy Program ranking matrix for prioritizing farmland for conservation.
Further, Prime Farmland lends itself to simple, objective, site-specific
identification and mapping of lands designated for protection. While Prime
Farmland is arguably the most suitable criterion for identifying County farmland
for protection, it should be applied with the understanding that it is based on
map units in the 1977 Orange County Soil Survey, which has limitations
associated with mapping scale, methods used at the time, dated aerial
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52
DRAFT/March 28,2025
photographic base, and challenges with digital cartographic data
transference.
*The National Resource Conservation Service (NRCS) describes Prime Farmland as of major
importance in meeting the Nation's short- and long-range needs for food and fiber. Because the
supply of high-quality farmland is limited, the USDA recognizes that responsible levels of
government, as well as individuals, should encourage and facilitate the wise use of our Nation's
prime farmland. . .. Prime farmland, as defined by the USDA, is land that has the best
combination of physical and chemical characteristics for producing food, feed, forage, fiber,
and oilseed crops and is available for these uses. It could be cultivated land, pastureland,
forestland, or other land, but it is not urban or built-up land or water areas. The soil quality,
growing season, and moisture supply are those needed for the soil to economically produce
sustained high yields of crops when proper management, including water management, and
acceptable farming methods are applied. In general, prime farmland has an adequate and
dependable supply of moisture from precipitation or irrigation, a favorable temperature and
growing season, acceptable acidity or alkalinity, an acceptable salt and sodium content, and
few or no rocks. The water supply is dependable and of adequate quality. Prime farmland is
permeable to water and air. It is not excessively erodible or saturated with water for long
periods, and it either is not frequently flooded during the growing season or is protected from
flooding. Slope ranges mainly from 0 to 6 percent.
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DRAFT/March 28,2025
Appendix 3. Recommendations for Framework for Revisions and Additions to
Protection the Unified Development Ordinance to Strengthen Farmland
Protection
Sections of the Unified Development Ordinance that present opportunity for
amendment to strengthen farmland protection include (but are not limited to)
7. 12 Flexible Developments, 1.6 Planning Board, 2.4 Zoning Compliance Review,
2.5 Site Plan Review, 2. 13 Exempt Subdivisions, 2. 14/2. 15 Minor/Major
Subdivisions, 4 Overlay Districts, 5 Uses, 5. 13 Standards for Agricultural Uses, 6
Development Standards, 6.6 Additional Standards for Overly Districts, 7. 13
Specifications for Plat Drawings, and a Use Authorization Certificate for
conserved farmland.
Definition of the Resource: The resource targeted for conservation is Prime
Farmland* rather than the farm itself as a cultural element defined by ownership,
property boundary, and land use. Prime Farmland in Orange County is mapped
in the 1977 Orange County Soil Survey. Eleven (1 1) map units are identified as
prime farmland: HrB, CfB, CrB, EnB, HeB, VaB, ApB, GeB, HwB, Aa, HhA. For these
soil map units, the first one or two letters indicate the soil series (soil type), and
the last letter indicates the slope range. These Prime Farmland units represent
123,730 acres of the 256,640 acres in Orange County (48.2%) per the 1977
Orange County Soil Survey.
Identification: Field identification of Prime Farmland represented on a map layer
is required as part of any site development application package (plat
drawings).
Statement of Resource Avoidance and Minimization: The applicant must address
how the plan avoids and minimizes impact to Prime Farmland. Impact is defined
as any non-agricultural disturbance of the natural soil profile (i.e., the naturally
occurring soil layers). Such activities include grading (cut or fill).
Mitigation may be considered as an additional measure to reduce loss of Prime
Farmland. That is, once the resource has been identified and the applicant has
demonstrated satisfactory avoidance and minimization of impacts to prime
farmland, mitigation of those impacts may include protective easements on
remaining Prime Farmland on site, acquisition of protective easements on
comparable off-site farmland resource, in-lieu fee payment to the Orange
County Lands Legacy program or similar land conservancy, fee purchase of off-
site farmland resources.
Best Management Practices: Standards for best management practices may be
developed for agricultural areas that are retained as common space in any
development.
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DRAFT/March 28, 2025
*The National Resource Conservation Service (NRCS) describes Prime Farmland as of major
importance in meeting the Nation's short-and long-range needs for food and fiber. Because the
supply of high-quality farmland is limited, the USDA recognizes that responsible levels of
government, as well as individuals, should encourage and facilitate the wise use of our Nation's
prime farmland. . .. Prime farmland, as defined by the USDA, is land that has the best
combination of physical and chemical characteristics for producing food, feed, forage, fiber,
and oilseed crops and is available for these uses. It could be cultivated land, pastureland,
forestland, or other land, but it is not urban or built-up land or water areas. The soil quality,
growing season, and moisture supply are those needed for the soil to economically produce
sustained high yields of crops when proper management, including water management, and
acceptable farming methods are applied. In general, prime farmland has an adequate and
dependable supply of moisture from precipitation or irrigation, a favorable temperature and
growing season, acceptable acidity or alkalinity, an acceptable salt and sodium content, and
few or no rocks. The water supply is dependable and of adequate quality. Prime farmland is
permeable to water and air. It is not excessively erodible or saturated with water for long
periods, and it either is not frequently flooded during the growing season or is protected from
flooding. Slope ranges mainly from 0 to 6 percent.
52
55
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Agricultural Viability and
s
Farmland Stewardship Plan
for Orange County, 2025-2029
Jane Saiers on behalf of the
Agricultural Preservation Board
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56
Sustainable ORANGE COUNTY
Agriculture NORTH CAROLINA
STRATEGIC PLAN FY2025-2029
➢ Preserves and restores
habitats
r Maintains wildlife Orange County aims to "incentivize and
corridors
A-- Protects watersheds,
promote sustainable agriculture and local
improves water quality food systems development through
Enhances soil health supportive policy, funding, farmland
Sequesters carbon „
Supports resilient local protection, and educational outreach.
and regional food
systems
57
J- Agricultural Viability and
Farmland Stewardship Plan
A A Meets guidelines outlined in the NC General
Statutes for preferential eligibility Trust Fund monies
➢ Updates and builds upon the Plan adopted in 2009
➢ Proposes actions to be implemented in next 5 years
"fr".� ➢ Is intended as a "living plan" to be updated and
reissued biennially
58
Challenges Loss of Farmland to Development
Acres in Farms' Acres in Crops2
71 ,010 in 2002 21 ,610 in 2017
�W
'
53,068 in 2022 8,821 in 2022
'USDA,2023.US Department of Agriculture,National Agricultural Statistics Service.2023 North Carolina agricultural statistics.Available at:
https://www.noss.usda.goy/Statistics by State/North_Carolina/Publications/Annual Statistical Bulletin/AgStat/NCAgstatBook.pdf
20range County Land Cover Study,2023
59
Economics of Agriculture
Challenges
Average net income of
Orange County farmer in 2022:
-$2, 2131
s _
—40% of farms had
<$2,500 in sales'
Farming main source
of income for only
30% of farmers' 3
'USDA,2023.US Department of Agriculture,National Agricultural Statistics Service.2023 North Carolina agricultural statistics.Available at:
https//www.nass.usda.gov/Statistics by State/North_Carolina/Publications/Annual_Statistical_Bulletin/AgStat/NCAgStatBook pdf
2Orange County Land Cover Study,2023
3Orange County Farmer/Landowner Survey,2023
.1
Opportunities
1 . Soils, climate, and 2. Growing
water resources to communities of small,
support agriculture diversified farms and
,. into the future new/beginning farmers
- 3. Farmers who are passionate
about their work and want to
t keep their land in farming
r 4. Local food hubs with 5. Citizens who value
capacities and expertise agriculture and seek
to support farmers in food grown sustainably
expanding their markets and locally
61
Opportunities Land Use Plan 2050 Citizen Survey
75% said local farms and
agritourism should be the
' foundation of the County's
x regional identity.
° Pro to c ting
agricultural working lands
and healthy soils was an
important environmental
need, second only to ensure
47% said family farms are water sources are clean.
the type of development
desired in the County.
62
Goals
41 . .
41 . .
Enhance the
Economic Viability of Agriculture:
Provide new business opportunities.
Increase local demand for Orange County farm products.
63
RECOMMENDATIONS ACTIONS
1 . Assess, ➢ Assess farmland conversion trends on a biennial basis.
document, and ➢ Conduct a biennial County-wide agricultural census.
communicate the ➢ Complete an Economic Impact Assessment of agriculture.
status of agriculture ➢ Complete a Cost of Community Services study of agriculture.
in Orange County. ➢ Communicate farmland conversion trends, census results, and
economic data in the Farmland Stewardship Plan and on
agriculture web page.
64
�. ►''ice
i
RECOMMENDATIONS ACTIONS
2. Elevate agriculture ➢ On the Planning Board, include an APB member. On the APB,
to a primary use in include a Planning Board member.
Land use planning, ➢ Adopt the Farmland Stewardship Plan as a reference in the
regulations, and 2050 Comprehensive Plan.
policy. ➢ Adopt a Prioritization Method to identify and target farmland
for conservation. (Appendix 2)
➢ Adopt modifications and additions to the UDO and to County
policies to elevate agriculture to a primary land use.
(Appendix 3)
65
r,11s. ►''i-
PRIORITIZING LAND STRENGTHENING UDO
FOR PROTECTION
UjQL
➢ USDA Prime Farmland e QAvoid
➢ <8% slope
➢ Land is not developed and
is outside the municipalities Minimize
Impacts
and the ETJs.
CU m
LU CL Mitigate
Imcts
State of the Art on Agricultural Preservation.CALAFCO White Paper.February 2018.Available at:mendotafco.org/files/ V) m
pa
485edbca3/CALAFCO_AFT+White+Paper+on+Ag+Preservation_Feb+2018%28REV%29.pdf —i --j
Planning for an Agricultural Future:A Guide for North Carolina Farmers and Local Governments,2007,American Farmland Trust.
Available at:s30428.pcdn.co/wp-content/uploads/sites/2/2019/09/FINAL_NCP4Ag_AFT_l.pdf kh,
66
416A
RECOMMENDATIONS ACTIONS
1 . Increase the rate at ➢ Increase funds for Lands Legacy conservation easements.
which Lands Legacy ➢ Identify and implement additional frameworks for collaboration
easements are with other conservation organizations.
granted. ➢ Intensify VAD/EVAD recruiting efforts.
2. Use the VAD program ➢ Encourage VAD/EVAD farmers to participate in a conservation
as a steppingstone to easement workshop and incentivize enrollment.
Lands Legacy ➢ Fund easement-related legal and financial consulting for
easements. VAD/EVAD landowners.
67
416A
RECOMMENDATIONS ACTIONS
3. Provide farmers ➢ Fund transition planning consulting for VAD/EVAD landowners and
with education and farmers holding conservation easements.
resources on ➢ Convene an annual Transition Planning/Estate Planning summit.
transition planning ➢ Educate forest owners about the environmental and financial
and farmland benefits of conserving forestland.
conservation. ➢ Conduct outreach to understand farmer perspectives on transition
plans to support customized transition planning and conservation.
4. Establish Farmland ➢ Define the duties of the role.
Stewardship ➢ Assign the position a place in the County organizational structure
Coordinator role. and allocate funding for it.
68
Enhance the Economic Viability
of Agriculture
RECOMMENDATIONS ACTIONS
1 . Expand educational ➢ Offer education to include business development, agritourism,
opportunities in ag and crop production, livestock management, marketing.
business development.
2. Support farmers in ➢ Form a County Agritourism Networking Group.
diversifying through ➢ Incorporate an agritourism module into the education program.
agritourism.
69
Enhance the Economic Viability
O 'k
41 of Agriculture
RECOMMENDATIONS ACTIONS
➢ Educate farmers about the benefits of, and fund, GAP certification.
3. Support farmers' ➢ Fund and implement a farm-to-school pilot program.
expansion into
➢ Provide opportunities for aggregation, sale, and distribution of farm
wholesale markets. products through a local food hub.
➢ Conduct a feasibility study for a regional market and hub.
4. Provide citizens and ➢ Update the Farmland Stewardship Plan biennially.
decision-makers ag ➢ Communicate about agriculture through website, social media.
education and ➢ Convene a periodic agricultural festival for the public.
opportunities to ➢ Expand the County Farm-to-Table event.
engage with farmers.
70
Enhance the Economic Viability
of Agriculture
RECOMMENDATIONS ACTIONS
5. Offer financial ➢ Broaden eligibility criteria for Agricultural Economic
incentives for Development grants to include agricultural support entities and
agriculture and increase flexibility in awarding funds.
agricultural ➢ Fund new-farmer-startup grants and develop tax credits to assist
development. new farmers.
➢ Identify and establish property tax incentives to support farm
sustainability.
➢ Conduct a multi-County pilot program to reduce the acreage
requirement of the Present Use Value Program.
71
Potential Funding
vq
➢ Deferred taxes from farmland coming out of
the Present Use Value program
➢ Grants
➢ Ag Development and Farmland Preservation
Trust Fund
➢ Golden Leaf
➢ NC Tobacco Trust Fund
➢ Orange County Farm Bureau
72
Orange County Vision for Agriculture : 2025-2029
• Farm viability is enhanced, and farmland is maintained and
stewarded for agricultural uses through judicious land use planning
and educational, logistical, and financial support.
• Citizens and decision-makers have the information and resources
they need to support local agriculture and the farming community.
• Farmers are supported in their livelihoods with educational,
financial, and infrastructural resources.