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Land Use and Resource Management Plan for the Primary Zone of the Delta — Agriculture

Delta agricultural lands were "reclaimed" through construction of levees and drainage of the marshy islands of the area. In less than 100 years, from 1850 to 1930, hundreds of thousands of acres of land went into agricultural production. The farmers and landowners represented a cross section of the new Americans-- Slavs, Dutch, German, English, and others. Many groups of immigrants first labored in the fields, then went on to become landowners or tenant farmers including Portuguese, Chinese, Japanese, Filipinos, and Hindus.

Early crops were grains, and fruits and vegetables marketed in the nearby cities. Early specialty crops included wheat, barley, beans, and potatoes. Later asparagus, sugar beets, tomatoes, and celery grew in popularity. Currently, the Delta counties raise a variety of crops including grains, fruits, field crops, nuts, seeds, pasture and alfalfa, and vegetables.

In the recent past, thousands of acres of agricultural lands were developed for residential and other urban uses. Between 1976 and 1993, about 21,600 acres in the Secondary Zone of the Delta were developed. Of the 21,600 acres, about 5,800 acres were orchards. The biggest change in the Primary Zone in that period in was the planting of about 4,500 acres of new orchards and vineyards. Loss of steady water supplies for Valley farmers will tend to make Delta lands with their riparian water rights more valuable for agriculture. New markets to sell crops and new crops, including crops to burn as energy sources, will continue to keep agriculture an important land use in the Delta and California.

Local governments have certain limited regulatory authority over agricultural lands, including minimum parcel sizes. While each of the five Delta counties has different minimum parcel sizes, each County clearly delineates the Delta lands for long-term agricultural use. Local governments use "land use tools" such as an agricultural element in the General Plan, adoption of an urban limit line, buffers between agriculture and other approved uses, adoption of a Right to Farm ordinance, controls over subdivisions of agricultural lands, limitations on land uses allowable in the agricultural zone, limitations on changing General Plan designations, acquisition of conservation easements, transfer of development rights, and full support of Williamson Act programs.

Agricultural lands provide rich seasonal wildlife habitat. Thousands of acres of agricultural lands are flooded after harvest and provide feeding and resting areas for local and migratory birds and other wildlife. Development of a management plan for seasonal flooding helps maximize the wildlife values and lessen opportunities for agricultural pests.

Goal: To support long-term viability of commercial agriculture and to discourage inappropriate development of agricultural lands.

Agriculture Findings:
  • F-1. The State of California has about 30 million acres of agricultural land out of a total of 100 million acres in the United States. Of the 30 million acres of agricultural lands, about 8 million are irrigated. California leads the nation in the production of food and fiber. California agricultural products are diverse, with over 250 crops and livestock commodities, and with no one crop dominating. The value of farm products statewide in 1992 was $18.1 billion, over 9% of the State's economy. Each California farmer produces enough food and fiber for 129 people, including 97 people in the U.S. and 32 abroad.
  • F-2. The State of California tops the list of states losing farms. In 1992, California lost 4,000 farms. However, the average farm size increased slightly from 468 acres to 473 acres (about 1%).
  • F-3. The total agricultural income for the five Delta counties is $1.6 billion dollars (1993). The Delta portions of the five counties are some of the most valuable agricultural land in each County due to the rich peat and mineral soils and the riparian water supply.
  • F-4. The Delta counties designate the Delta lands primarily for agricultural use; Contra Costa County has a special "Delta Recreation and Resource" designation for the Delta islands.
  • F-5. New trade and export opportunities will probably increase markets for California's agricultural products. Currently State exports are at $4.7 billion.
  • F-6. Consumer trends, new crops, and new uses for crops will continue to change the face of agriculture. Examples are growing crops for fuel for power plants and cars; reuse and recycling of portions of crops such as cotton seed and soybean oil for fuel and corn stalks as a fuel source.
  • F-7. Current trends, regulations, and programs are resulting in reduced use of chemical fertilizers, pesticides, and herbicides. There is an increasing use of biochemical agents and integrated crop management. Farmers need to maintain or increase crop production levels.
  • F-8. As in other parts of government, program costs such as information gathering and dissemination are being shifted from government to agriculture. Costs of regulation are also being shifted to users, reflected in larger permit fees, etc.
  • F-9. Local government has used various means to protect agricultural land uses: adopting right to farm ordinances, adopting rules prohibiting subdivision of lands under Williamson Act contract, adoption of urban limit lines, requiring buffers between non-agricultural and agricultural land uses, increasing minimum parcel sizes, adopting an agricultural element to the General Plan, adopting criteria to evaluate proposals to take land out of agricultural use, purchasing conservation easements (development rights) to compensate landowner for loss of development potential, and allowing transfer of development rights from agricultural parcels to other parcels.
  • F-10. Conflicts between agricultural activities and new residential, commercial, industrial, and recreational uses create long-term conflicts which have a deleterious impact on agriculture. Complaints by non-farmers include: noise, dust, odors, flies, mosquitoes, aerial applications of fertilizer, pesticide and herbicide, night activity, and other aspects of normal agricultural activity. Complaints by farmers include trash, vandalism, increased traffic, loss of agricultural land, and dust.
  • F-11. Programs at State and federal level support land management to enhance habitat values on private agricultural lands. Some programs will result in permanent conversion of agricultural land. Examples include: creation of wetlands on agricultural lands; seasonal flooding of agricultural lands; deferred tillage; deferred harvesting of grains; enhancement of field edges as habitat; and planting native plants along roadways and between fields. However, many of the existing programs do not reflect the unique Delta resources and opportunities.
  • F-12. Agriculture in the Delta evolves as farming practices, market opportunities, and government programs change. Availability of water makes the Delta a unique geographical region for agriculture. Future agricultural practices may require construction of additional infrastructure to accommodate more intensive agricultural operations.
Agriculture Policies:
  • P-1. Commercial agriculture in the Delta shall be supported and encouraged as a key element in the State's economy and in providing the food supply needed to sustain the increasing population of the State, the Nation, and the world.
  • P-2. Local governments, as defined in Public Resources Code Section 29725, shall identify the unique qualities of the Delta which make it well suited for agriculture. These qualities include: rich soil, ample supplies of water, long growing season, mild climate, and proximity to packaging and shipping infrastructure. The unique physical characteristics of the Delta also require that agricultural landowners maintain extensive levee systems, provide flood control, and have adequate drainage to allow the lands to be farmed.
  • P-3. Education of the local populations about the value and rich heritage of agriculture in the State and in the Delta shall be continued and expanded.
  • P-4. Local governments shall support long-term viability of commercial agriculture in the Delta because of its economic and environmental importance to the State and local communities.
  • P-5. Support shall be given to current and alternative programs that help to minimize the need for costly production inputs such as fertilizers, pesticides, and herbicides as long as crop production levels and agricultural income can be maintained. Improving crop production and agricultural income is vital to the success of Delta agriculture.
  • P-6. Each local government shall continue to implement the necessary plans and ordinances to: maximize agricultural parcel size; reduce subdivision of agricultural lands; protect ordinary agricultural activities; protect agricultural land from conversion to other uses; and clearly define areas in that jurisdiction where urban land uses are appropriate and where agricultural land uses are appropriate. An optimum package of regulatory and incentive programs would include: (1) an urban limit line; (2) minimum parcel size consistent with local agricultural practices and needs; (3) strict subdivision regulations regarding subdivision of agricultural lands to ensure that subdivided lands will continue in agriculture; (4) delete from zoning ordinances "other" land uses which are not compatible the agriculture; (5) require adequate buffers between agricultural and non-agricultural land uses particularly residential development outside but adjacent to the Primary Zone; (6) an agriculture element of the general plan; (7) a right-to-farm ordinance; and (8) a conservation easement program.
  • P-7. Local governments shall encourage acquisition of agricultural conservation easements as mitigation for projects within each county, or through public or private funds obtained to protect agricultural and open space values, and habitat value that is associated with agricultural operations. Encourage transfer of development rights within land holdings, from parcel to parcel within the Delta, and where appropriate, to sites outside the Delta. Promote use of environmental mitigation in agricultural areas only when it is consistent and compatible with ongoing agricultural operations and when developed in appropriate locations designated on a countywide or Deltawide habitat management plan.
  • P-8. Local governments shall encourage management of agricultural lands which maximize wildlife habitat seasonally and year-round, through techniques such as sequential flooding in fall and winter, leaving crop residue, creation of mosaic of small grains and flooded areas, controlling predators, controlling poaching, controlling public access, and others.
  • P-9. Local governments may continue to retain agricultural zoning and minimum parcel sizes as described in zoning codes in place January 1, 1992. Where minimum parcel size is less than 40 acres, local governments shall describe how smaller parcel sizes will support long-term viability of commercial agriculture in the Primary Zone. This policy shall not be construed to require the re-zoning of subminimum parcels.
  • P-10.
    • (i) Local governments may develop programs to cluster agriculture-dependent residential units or transfer development rights (TDRs) to off-site locations. Clustering on a single farm would be for family members or employees and would not exceed maximum number of units allowed under existing zoning as of January 1, 1992. Clustering would be accompanied by conditions to preserve agricultural use and open space values on the balance of the property. TDRs may involve transfers from farms to Primary Zone communities with adequate flood protection to protect residential use, or to sites out of the Primary Zone.
    • (ii) Local governments that pursue clustering or transfer of development rights shall proceed with adoption procedures to implement such programs as part of the local government implementation of the resource management plan.
    • (iii) Where portions of cities are located within the Primary Zone, cities shall indicate zoning which was in place on January 1, 1992. Future changes to city general plans or zoning ordinances shall conform to the resource management plan.
Agriculture Recommendations:
  • R-1. Programs to educate California and the U.S. about the value and diversity of California agriculture should continue. Education should provide information about various crops and about the different agricultural regions, such as the Delta.
  • R-2. As new information on best management practices to control subsidence of peat soils becomes available, the Commission should review that information and, if appropriate, amend the Plan.
  • R-3. The five Delta county Farm Bureaus should coordinate on issues of joint Concern.