HomeMy WebLinkAboutAgenda 06-02-2026; 6-b - Acceptance of Updated Orange County Agricultural Viability and Farmland Stewardship Plan 1
ORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: June 2, 2026
Action Agenda
Item No. 6-b
SUBJECT: Acceptance of Updated Orange County Agricultural Viability and Farmland
Stewardship Plan
DEPARTMENT: Environment, Agriculture, Parks & Recreation (DEAPR) —
Agricultural Preservation Board
ATTACHMENT(S) INFORMATION CONTACT:
Final Draft of Plan David Stancil, (919) 245-2522
Peter Sandbeck, (919) 245-2517
PURPOSE: To consider accepting the updated Agricultural Viability and Farmland Stewardship
Plan for Orange County to replace the 2009 Plan document.
BACKGROUND: In 2009, the BOCC adopted the County's first Agricultural Development and
Farmland Preservation Plan, prepared by the Agricultural Preservation Board (APB) in response
to state legislation passed in 2005 that encouraged counties to develop such plans as a means
of enhancing local support for farmland preservation and improving the economic viability of
farming operations. In 2022, the APB started work on a three-year project to update and replace
the existing 2009 Plan. The timing of this Plan update project will allow the APB to meet its goal
of having a completed Plan that can provide an agricultural preservation component for integration
into the County's current Land Use Plan 2050 update process.
The APB is pleased to present this updated version, entitled Agricultural Viability and Farmland
Stewardship Plan for Orange County, to replace the existing Plan. This document represents
hundreds of hours of dedication and hard work by the APB's Farmland Protection Subcommittee
and includes input and feedback from area farmers, along with collaboration with the staff of the
following: Orange County Center of NC Cooperative Extension, Orange County Soil and Water
District, the Orange County Planning Department and Orange County DEAPR.
An initial draft of the updated Plan was presented to the BOCC at a work session on April 8, 2025.
At that time, BOCC members shared their insights and provided valuable feedback. The
subcommittee edited and revised the Plan to address the various questions and issues raised by
the BOCC. At the direction of the BOCC, the subsequent draft was then reviewed by Planning
and Legal staff. Their recommendations have been incorporated into the attached final draft
version. Once approved, the new Plan must be forwarded to the staff of the North Carolina
Agricultural Development and Farmland Preservation Trust Fund (ADFP) for acceptance. This is
required to allow Orange County to continue to receive preference and enjoy reduced matching
fund requirements for state ADFP Trust Fund grants, which are awarded on a competitive
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statewide basis. Trust Fund grants are an important source of funding for farmland preservation
efforts, as the funds allow County funds to be significantly leveraged. Since 2016, Orange County
has been awarded just over $1.9 million in ADFP Trust Fund grants to support farmland projects
being undertaken through the Lands Legacy and Conservation Easement programs. Having a
current, updated Plan also demonstrates Orange County's strong commitment to farmland
preservation, an important factor in the ADFP Trust Fund's competitive application evaluation
process.
FINANCIAL IMPACT: There is no financial impact associated with this item. There is potential
fiscal benefit, in the form of a reduced local match (15% instead of the current 30%)for state grant
funds, with the adoption of the new Plan. This lower local match would apply for both farmland
preservation and agricultural economic development grant projects.
ALIGNMENT WITH STRATEGIC PLAN: This item supports:
• GOAL 1: ENVIRONMENTAL PROTECTION AND CLIMATE ACTION
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.
• 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 accept the new Agricultural
Viability and Farmland Stewardship Plan and authorize staff to submit the final Plan to the
Agricultural and Farmland Protection Trust Fund program within the NC Department of Agriculture
and Consumer Services.
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Agricultural Viability and Farmland Stewardship
Plan for Orange County, NC
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W. C.Breeze Farm,a research and education farm operated by NCSU and the Cooperative Extension Service.(Photo
courtesy of NC Extension-Orange County Center)
Prepared By:
Orange County Agricultural Preservation Board
Farmland Protection Subcommittee
With Assistance from:
NC Cooperative Extension-Orange County Center
Orange County Department of Environment, Agriculture, Parks and Recreation
2026
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Table of Contents
Acknowledgments Page 3
Preface Page 4
Call to Action Page 5
Executive Summary Page 8
1 . Overview Page 11
2. Importance of a Robust Local Agriculture Page 13
3. Challenges to Agriculture in Orange County Page 15
4. Opportunities for Agriculture in Orange County Page 21
5. Goals for Agriculture in Orange County Page 25
6. Recommendations and Priority Actions Page 28
7. Potential Sources of Funding Page 40
8. References Page 42
Appendix 1 . Summary of 2023 Orange County Farmer and Page 45
Landowner Survey
Appendix 2. Recommendations for Criteria for Identifying
Farmland for Protection in Orange County Page 46
Appendix 3. Example of a Potential Framework for Revisions
and Additions to the Unified Development Ordinance
to Strengthen Farmland Protection Page 49
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Acknowledgements:
Orange County Agricultural Preservation Board Members:
Michael Hughes, Chair
Mary Beth Miller, Vice Chair
Vaughn Compton
Vera Fabian
Beth Hooten
Salem Neff
Noah Ranells
Weston Rose
Jeff Sykes
Blake Thompson
William Totten
Michael Wagger
Sandra Weitzel
Kim Woods
Farmland Protection Subcommittee Members:
Jane Saiers (Chair)
Michael Hughes
Christian Hirni
Michael Ortosky
Jessica Perrin
Noah Ranells
Cecilia Redding
Peter Sandbeck
Special Credit
The Agricultural Preservation Board wishes to recognize the hard work by
subcommittee chair Jane Saiers, who devoted countless hours to drafting and
editing this plan document and keeping the team on track and on schedule,
while running her own demanding farm operation.
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Preface
The Orange County Agricultural Preservation Board is pleased to present this
new version of our Agricultural Viability and Farmland Stewardship Plan for
Orange County, to replace the existing plan adopted in 2009. This document
represents hundreds of hours of hard work by our Farmland Protection
Subcommittee and includes input and feedback from area farmers, along with
collaboration with the staff of the following: Orange County Center of NC
Cooperative Extension, Orange County Soil and Water District, the Orange
County Planning Department and the Orange County Department of
Agriculture, Environment, Parks and Recreation.
In April 2025, a draft of this plan was presented to the membership of Orange
County's Board of County Commissioners (BOCC), who provided valuable
feedback and shared their insights. The subcommittee undertook additional
research and editorial work to address questions and issues raised by the
Commissioners. A revised draft was then reviewed by Planning and Legal Staff.
Their ideas and input have been incorporated into this final version. Once
approved by the BOCC, our new plan must be forwarded to the staff of the
North Carolina Agricultural Development and Farmland Preservation Trust Fund
(ADFP), for acceptance. This is required to allow Orange County to continue to
receive preference and enjoy reduced matching fund requirements for ADFP
Trust Fund grants. This program has been and will continue to be a major source
of funding for our farmland preservation projects.
Our plan articulates current conditions in local agriculture and presents a vision
for how Orange County can work proactively to enhance the viability of
agriculture and promote farmland preservation. The plan provides
recommendations for future actions and articulates a series of implementation
steps to be carried out over the next few years as the Agricultural Preservation
Board presents specific recommendations and requests for consideration by the
BOCC.
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Call to Action
The challenges to farming in Orange County are real and growing: we lost 24%
of our farmland to development and other non-agricultural uses between 2017
and 2022, decreasing from 69,908 to 53,068 acres, according to the most recent
USDA Census of Agriculture statistics (carried out every five years). According to
projections by the American Farmland Trust, we are on a trajectory to lose as
much as 20,000 more acres of farmland to development by 2040. Farm income
likewise declined by 14% during the same period, from nearly $38 million to
about $32.5 million. The ongoing loss of farmland has continued since these 2022
statistics were generated. Our own independent survey of the county's farmers
and landowners confirmed these findings.
In our current economic environment, the majority of the county's new
development (outside of municipal boundaries) takes the form of large-lot
subdivisions, often consisting of expensive custom homes sited on parcels of 2 to
10 acres. These houses are usually sited on the best prime farmland, which is the
most level and possesses the highest-quality soils. For those same reasons, this
land is the least costly to develop and performs best for septic systems. On many
levels, this type of development runs counter to all the County's strategic goals.
Not only is this type of high-end housing expensive, it also consumes large
amounts of irreplaceable farmland, increases vehicle-miles traveled, and adds
service costs to the county budget that far exceed the tax revenue they
generate.
As a result of these trends, agriculture in Orange County is approaching a
tipping point. The sky-high property values generated by intensive development
pressure are making it ever harder for landowners and producers to justify the
long hours and uncertain paybacks of farming—especially when most can
readily sell their land for $20,000 to $30,000 per acre, or double that if the land is
close to our municipalities. Our younger new farmers find themselves priced out
of the market as they seek to acquire their own farm. In addition, farming here is
now experiencing a major generational shift, with older farmers unsure of what
to do with their large landholdings as they prepare to retire.
Orange County can be proud of being a statewide pioneer in land
conservation, starting in 2000 when we started the Lands Legacy program. This
initiative has made significant accomplishments by protecting over 4,200 acres
through its conservation easement program, including 29 agricultural easements
protecting 2,326 acres or about 4.5% of the county's active farmland. These
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easements have been made possible by steady levels of county funding over
the years. However, in the current environment, Orange County could lose that
entire amount of farmland in just a single year to development. Sadly, despite all
our current efforts, we are rapidly losing ground. Once farmland is developed, it
can never again be used to produce food.
Farmers in Orange County have embraced our Voluntary Agricultural District
(VAD) program which has achieved considerable success by enrolling 162
farms, totaling 17,833 acres, or about 33% of the county's active farmland. These
farm owners have committed to continuing to farm rather than develop their
land. However, out of this total, over 15,000 acres are enrolled in voluntary
conservation agreements with the county, meaning these owners can withdraw
any time and sell their land for development.
We are fortunate to see an increase in younger start-up farm operators, drawn
to the area by our many vibrant farmers' markets and consumers who strongly
support locally grown foods. Some of these new farmers have leased farmland
at the Breeze Farm Incubator, operated by our Orange County Extension staff
and NCSU. These newcomers aspire to farm ownership but are finding it
increasingly difficult to compete with developers willing to pay top dollar for our
best farmland.
Orange County can choose to take additional steps to support farmland
retention and agricultural viability. Nearby counties, including Wake and
Chatham, have already implemented robust new farmland preservation
programs in response to similar challenges. Our plan provides a thoughtful and
measured vision to guide us as we work together with our Board of County
Commissioners to mount a strong response to these challenges.
The timing is fortuitous. Planning Department staff are ready to use this new plan
to inform and guide their current efforts to update the County's Land Use Plan,
as they work to craft their recommendations for enhancing agriculture and
preserving farmland. The public engagement sessions held in 2024 by the
Planning Department, as part of the current Land Use Plan update process,
revealed that a significant majority of participants voiced strong support for
policies that promote sustainable agriculture, farmland preservation and natural
heritage.
The goals of our plan are consistent with the Board of County Commissioner's
goals as articulated in The Orange County Strategic Plan 2025-2029 which
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includes the following Environmental Protection and Climate Action objective:
"incentivize and promote sustainable agriculture and local food systems
development through supportive policy, funding, farmland protection, and
educational outreach."
Orange County has established a long record of support for agriculture and
farmland preservation—we are proud of our many accomplishments. But there
is still much more to be done. We look forward to working with policy makers
and the farming community in the coming years to enhance existing efforts and
undertake new initiatives to ensure the future viability of farming, to allow current
and future generations of Orange County residents to continue to enjoy all the
economic, environmental and cultural benefits provided by a robust and
sustainable local farming community.
Orange County Agricultural Preservation Board
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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 provide
recommendations 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 proposes
strategies 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 provide an outline of proposed Recommendations
and Actions that 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 prudent 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 the importance of farmland 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) Draft and propose a Prioritization Method to identify and target farmland for
conservation in coordination with existing Lands Legacy prioritization criteria.
c) In collaboration with the Planning Department, assess the need for modifications and
additions to the Unified Development Ordinance (UDO) and to County policies to
elevate the importance of farmland 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 farmland conservation easements
are completed.
a) Increase the funds available for County purchase of Lands Legacy Program farmland
conservation easements.
b) Identify and implement additional frameworks for County collaboration with partner
conservation organizations (e.g., Triangle Land Conservancy, Eno River Foundation) to
secure farmland 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) Offer conservation easement workshops and training tailored for VAD/EVAD farmers.
5) Provide farmers with education and resources on transition planning and farmland
conservation.
a) Offer farm succession and transition planning education 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 in collaboration with relevant program staff.
b) Determine the appropriate place in the County organizational structure for this role and
identify potential funding sources.
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).
9) Support farmers in efforts to expand into wholesale markets.
a) Educate farmers about the benefits of GAP certification.
b) 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
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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)Support and enhance agricultural development in the County.
a) Assess the utility of (a) modifying eligibility criteria for Agricultural Economic Development
grants to include agricultural support entities and (b) assess expanding the scope and
flexibility in awarding grant funds across three categories of recipient (new farmers,
established farmers, agricultural support entities).
b) Explore feasibility of legislative changes to revisit the acreage and income thresholds for
Present Use Value program eligibility.
c) Explore innovative approaches that focus on supporting new and existing farmers,
including possible land bank programs.
Potential funding sources include
• Deferred Taxes from Farmland Coming Out of the Present Use Value Program
Establish a program to provide additional funding for farmland preservation through
deferred property tax revenue generated when a farm operation ceases to be eligible
for the Present Use Value (PUV) program. A growing number of other counties in and
adjacent to rapidly growing metro areas have recently adopted this approach as a key
component of their farmland preservation efforts. This method creates a direct linkage
between the loss of farmland due to development and county farmland preservation.
• 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 priorities of Environmental
Protection and Climate Action, to: "incentivize and promote sustainable
agriculture and local food systems development through supportive policy,
funding, farmland protection, and educational outreach" (Orange County,
2024).
Orange County was an early leader in North Carolina's agricultural preservation
efforts and was one of the first counties to adopt a countywide farmland
protection ordinance in 1992. Today 17,833 acres of farmland are enrolled in the
County's Voluntary Agricultural District (VAD/EVAD) program. In 2000, the county
established the state's first comprehensive land acquisition and easement
program, the Lands Legacy Program, to protect both active farmland and
conservation land. Through this program, 29 agricultural easements have been
recorded, protecting approximately 2,326 acres of farmland to date. Despite
these achievements, the county's acreage in farming has declined, from
approximately 70,000 acres in 2017 to 53,000 acres in 2022, largely due to
conversion to development and other non-farm uses. Farm income likewise
decreased during that period, from nearly $38 million to $32.5 million. (USDA,
2022) [Photo 2]
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 2026 to 2030.
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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 $32 million in 2022, and agriculture employed approximately 1% of
the population (approximately 1500 people) in the County (USDA, 2023;
Agricultural Census, 2022). [Photo 3] 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
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Economic Impact Study to better quantify the current impact of agriculture in
the County.
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 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;
carried out by the USDA every 5 years). [Photos 4 and 5] 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
decrease in land devoted to row crops (excluding grassland and forestland)
and an increase in developed land during the period from 2017 to 2022.
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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 1). 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.
Figure 1. 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(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 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 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.„
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, Orange County is projected to lose an additional 19,900 acres
to development (Figure 2) in the absence of effective farmland protection
policies. Most of that farmland conversion---70% of it through 2040---is predicted
to occur on the County's most productive prime farmland—the land that is
easiest to develop due to its relatively level topography and soils that are
suitable for septic.
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Figure 2. 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
Converted from
- Farmland*
_ to Development
-i
54
.I
rd
y�
https://deelopment2090.farmland.org/ `Farmland=cropland+pasture+woodland associated with farms
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 3).
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.
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Figure 3. 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 0 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.
Box 1.Totten Farm's Story
I have many concerns about the loss of farmland, farming culture and
community. I 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
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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 (670) 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 with only 6% (43) of farms selling $100,000 or more in farm products (Figure
4). 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.
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 4. Number of Orange County farms by value of sales, 2022
$100,000 or more _43
$50,000-$99,999 _40
$25,000-$29,999 -65
$10,000-$24,999 99
$5000-$9999 34
$2500-$4999 95
<$2500 271
0 50 100 150 200 250 300
Numberof Farms
2022 Census of Agriculture—Orange County 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
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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).
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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—one of
the major goals of 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. [Photo 6] 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 grains,
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. [Photo 7]
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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
localfoodshed 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 critical 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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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). [Photos 8 and 9]
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 provide 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
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multiple farmers to achieve and distribute wholesale quantities that individual
small farmers cannot achieve on their own.
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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 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 5) (Hunter, 2022).
Figure 5. 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
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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, but 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 administers conservation easements in the
County as do nonprofit entities such as Triangle Land Conservancy, Eno River
Association, and Working Lands Trust. With assistance from these groups, the
County has permanently preserved over 3000 acres of farmland and
conservation land combined. The County also administers the 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 May 2026, the
VAD/EVAD programs have enrolled 162 farms comprising 17,833 acres in [Photo
10:] voluntary conservation agreements. These numbers, while encouraging,
show that our current efforts are falling far short of the challenge. The 2022 USDA
Agricultural Census reported that the County lost over 16,000 acres of farmland
to development and other uses between 2017 and 2022. (Agricultural Census,
2022) 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
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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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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 1d: 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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• 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 the importance of protecting prime farmland in
land use planning, regulations, and policy. Priority Actions 2b and 2c provide for
development of policy, guidelines, and regulations that can help mitigate
farmland loss and preserve the County's most productive land for agriculture.
Prime farmland can be designated as high priority 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) as described in Appendix
2. The Prioritization Method of Priority Action 2b (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. 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) (Appendix 3).
• 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
• Priority Action 2b: Draft and propose a Prioritization Method to identify and
target prime farmland for conservation to be used in conjunction with Lands
Legacy Program prioritization criteria when appropriate. Draft
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recommendations for such a Prioritization Method are summarized in
Appendix 2.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Prioritization Method drafted No funding required
• Priority Action 2c: In collaboration with the Planning department, assess the
need for modifications and additions to the Unified Development Ordinance
(UDO) and to County policies to elevate the importance of farmland in land
use regulations and policy.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Review of UDO completed No funding required
• Recommendations for policy
additions and new ordinances that
support conservation of farmland
drafted
GOAL #2: Conserve Farmland Through Direct Measures
Recommendation 3: Increase the rate at which Lands Legacy Program
conservation easements are completed. 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.
• 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 completed
• 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
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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 completed
• 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 and 4b 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.
• 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: Offer conservation easement workshops to VAD/EVAD
farmers.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Conservation easement workshop Funding required
held annually
• Number of VAD/EVAD farmer-
participants in workshop
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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.
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. Photo 11]
• Priority Action 5a: Offer transition planning education 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
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• 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 0 Agricultural Preservation Board
farmers in forestry PUV members
• Annual increase in number of 0 Orange County Extension agents
acres of forestland permanently
conserved
• 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 0 County staff including new
contacted for inclusion in the proposed Ag Viability and
database Farmland Stewardship position
• Number of farmers/landowners 0 Agricultural Preservation Board
with data represented in the members
database 0 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 the future creation of a County staff position dedicated to agricultural
viability and farmland stewardship. Other counties in North Carolina, including
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Chatham and Wake, now have a staff member dedicated solely to agricultural
development and farmland protection.
• Priority Action ba: Define the duties of the coordinator role in collaboration
with relevant program staff 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 bb: Assess the appropriate place in the County organizational
structure for this role and identify potential funding sources
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Funding secured Funding required
• Job posted
• Position filled
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.
[Photo 12] 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
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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 enhancing 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. Agritourism
initiatives entail welcoming visitors to the farm for rural activities (including
recreation, education, and entertainment) that require a farm or natural setting
with the goal of enhancing awareness and understanding of agriculture and/or
the natural world. [Photo 13]
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
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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 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
• Priority Action 9b: 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 e 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 0 County staff including new
with local food proposed Ag Viability and
aggregator/distributor Farmland Stewardship position
• Number of Orange County farmer 0 County Extension agent
participants
• Pounds of County-sourced food
sold through program
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FINAL DRAFT-5-27-26
• $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
production are likely to buy local farm products and to support stewardship of
local farmland. Priority Actions I Oa through l Od provide mechanisms for
enhancing community members' and decision-makers' awareness and
understanding of the contributions of agriculture in Orange County. [Photo 14]
• 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
biennially
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• 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
Recommendation 11: Support additional 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. County programs to counteract these
deterrents 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 and 11 b 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 1 1 b would
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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: Assess the utility of (a) modifying eligibility criteria for
Agricultural Economic Development grants to include agricultural support
entities (e.g., NC Farml-ink, Farmer Foodshare) and (b) increasing flexibility in
awarding grant funds across three categories of recipient (new farmers,
established farmers, agricultural support entities).
BENCHMARK/PROGRESS INDICATORSFUNDING/RESOURCES
• Assessment and recommendationstNonding required
completed
• Priority Action 11 b: Collaborate with other counties to assess the feasibility
and usefulness of developing a proposal, for eventual consideration by the
General Assembly, to reduce the acreage requirement of the Present Use
Value Program.
BENCHMARK/PROGRESS INDICATORS FUNDING/RESOURCES
• Assessment of farmer interest 0 County Extension agent
completed 0 County staff including new
• Collaborating counties identified proposed Ag Viability and
and recruited Farmland Stewardship position
• Plan for proposal development 0 Collaborating counties
drafted
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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
Establish a program to provide additional funding for farmland preservation
through deferred property tax revenue generated when a farm operation
ceases to be eligible for the Present Use Value (PUV) program. This program
provides substantial property tax reductions for agriculture, allowing landowners
to maintain economically viable farming and/or forestry operations, especially in
areas experiencing rapidly increasing property values. When land enrolled in the
PUV program ceases to be used for farming or timber (usually when sold for
development), the owner must repay the deferred taxes for the year of
disqualification and the prior three years. Other counties in or near rapidly
growing metro areas, such as Alamance, Cabarrus, Chatham, Iredell Lee,
Rowan and UnionWake,and, have recently adopted this approach as a key
component of their farmland preservation efforts. This method creates a direct
linkage between the loss of farmland due to development and county farmland
preservation.
7.2. Grants
Agricultural Development and 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. This program 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.
Orange County has been successful in obtaining ADFP grant funds. From:
https://www.ncogr.gov/adfp
Golden Leaf
The material below is quoted or paraphrased directly from
https://Qoldenleaf.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
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economically distressed areas of the state. Golden LEAF offers three grant
programs that can address infrastructure needs.
NC Tobacco Trust Fund
The material below is quoted directly from https://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.
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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. This is carried out every 5 years. Available at:
https://www.nass.usda.gov/Publications/AgCensus/2022/FuII 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://development204O.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
eb+2018 028REV%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:
hftps://calandfrusfs.org/resources/conserving-californias-harvest/
Chao K. Family farming in climate change: Strategies for resilient and sustainable food
systems. Heliyon 2024;10: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.
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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
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/download.
New England Access Policy Project, 2016. Policy options for strengthening farmland
mitigation in Massachusetts and other New England States. Available at:
https://landforgood.org/wp-content/uploads/LAP P-Policy-Options-For-Strengthen ing-
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.ncleg.gov/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-
VaIue-of-N.C.-Agriculture-Boo klet_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/land9O7O223
Pretty J. Agricultural sustainability: concepts, principles and evidence. Phil Trans R Soc B
2008;363: 447-465.
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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
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-FI NAL_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.gov/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;4:251-
281 .
WeConservePA, 2024. Cost of community service studies. Available at:
https://library.weconservepa.org/guides/15-cost-of-community-services-studies.
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Appendix 1. Summary of 2023 Orange County Farmer/Landowner Survey
***Note: Appendix 1 is a series of graphics and charts that are being converted
into a format to be included here.
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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 in 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-
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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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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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Appendix 3. Example of a Potential 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.
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Best Management Practices: Standards for best management practices may be
developed for agricultural areas that are retained as common space in any
development.
Fig. 6. Avoidance, Minimization and Mitigation Framework for Farmland Stewardship (CALAFCO,
2018)
m 'O
Refers to steering growth away from agricultural lands
using options such as an alternative project location or
a smaller scale project in order to avoid conversion of
(L a, agricultural lands.This is the best strategy when there
+pt +- is availability of vacant or underutilized lands within
L to
O O ` • • existing boundaries and there is no demonstrated
need for expanding boundaries based on more
Impacts efficient development patterns.
Refers to considering alternatives in the location,
siting and scale of a project;utilizing design features
such as agricultural buffers,and/or adopting
regulations such as Right to Farm ordinances,in order
to minimize conversion and impacts on/conflicts
Minimize with,agricultural operations or uses.This strategy is
used to maximize preservation when there are
Impactssignificant constraints to entirely avoiding impacts.
Refers to measures meant to compensate for the
tU tU conversion of agricultural lands,such as dedication of
i agricultural conservation easements,payment of In-
ca lieu fees,or purchase and transfer of agricultural
4.
Mitigate
lands,to an agricultural conservation entity.This
W d- strategy is used as a last resort and only when all
NImpactsefforts to avoid and minimize conversion of
tv �
agricultural lands have been exhausted.
J J
*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
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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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