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HomeMy WebLinkAboutCOUNCIL - AGENDA ITEM - 07/28/2020 - NATURAL AREAS AND LOCAL AGRICULTUREDATE: STAFF: July 28, 2020 Julia Feder, Environmental Planning Manager John Stokes, Natural Resources Director Zoe Shark, Interim Natural Areas Director WORK SESSION ITEM City Council SUBJECT FOR DISCUSSION Natural Areas and Local Agriculture EXECUTIVE SUMMARY The purpose of this item is to discuss potential conservation agriculture projects on lands acquired and managed by the City’s Natural Areas Department (the Department). Pending Council’s advice and feedback, in coming months staff will return to Council for its review of several leases associated with potential conservation agriculture partnerships. This item will provide an overview of conservation agriculture and a description of how conservation agriculture can help the Department improve its land stewardship. It will discuss how the Department could align agricultural management practices with its mission and support the City’s goals related to local, sustainable agriculture. A conservation agriculture approach would represent a shift to the current land management methodology on several natural areas. This shift will better reflect the 2014 Natural Areas Master Plan as compared to current agricultural operations (monocropping and haying). Moreover, as one of the largest landowners in and around Fort Collins, the City can play a role in helping the community achieve its goals related to the local food system as articulated in City Plan. GENERAL DIRECTION SOUGHT AND SPECIFIC QUESTIONS TO BE ANSWERED 1. What reflections does Council have on the concept to apply innovative, conservation management practices to conserved agricultural land? 2. Is September 2020 a reasonable timeline for Council consideration of two conservation agricultural land leases for the sites discussed in this Work Session? BACKGROUND / DISCUSSION OVERVIEW Contextual information provided in this document is organized in the following sections: A. Background B. Conservation Agriculture C. Historical Context and Guiding Policies D. Potential Projects E. Examples from Other Communities F. Summary of Anticipated Outcomes A. BACKGROUND The mission to, “conserve and enhance lands with natural resource, agricultural and scenic values, while providing meaningful education and appropriate recreation opportunities,” guides the City’s Natural Areas Department. This mission also makes the Department well-positioned to help preserve the agricultural heritage of the region and support City strategic goals related to the local food system. July 28, 2020 Page 2 Council-approved policies and plans, such as the Department’s mission and vision statements and the 2014 Natural Areas Master Plan, in addition to management policies and ballot language, provide guidance on how agriculture can best support City Plan Principles related to Environmental Health and a Safe Community. As one of the largest landowners in and around Fort Collins, the Department can play an integral role in helping the City achieve its goals regarding growth of the local food system. Of the more than 37,000 total acres of land owned and managed by the Department, approximately 12,000 acres are located within the City Limits, the Growth Management Area, in the foothills or in the Loveland-Fort Collins Community Separator. Among this acreage, and in support of its mission, the Department has acquired several agricultural properties. Many of these natural areas are actively managed through agriculture partnerships. In total, external partners actively farm approximately 300 acres, on five local natural area sites. Current agricultural operations on natural areas help preserve a pastoral view of the landscape by preserving open space. The agriculture production on the 300 local acres focuses on raising grasses and legumes (smooth brome, alfalfa, and feed corn) that supports regional, stock animal operations. These farmers employ flood irrigation techniques and often use synthetic fertilizers, herbicides, and pesticides to support yield. While these management practices support the Department’s goals of preserving scenic views, monocropping and conventional agricultural techniques result in lower ecologically valuable landscapes than those managed through diversified, sustainable agriculture. In consideration of the environmental, social, and economic vitality of the community, the Department proposes to shift to conservation agricultural practices on properties currently managed through conventional agriculture to better align with the Department’s conservation focus. There are many different names, techniques, and certifications used to define innovative and sustainable agricultural practices. Familiar ones such as organic farming, permaculture, and integrated pest management have long been accepted by the public, while agro- forestry, agri-environment management, and naturally certified are newer concepts taking root. The concept most aligned with the Natural Areas mission, and for discussion at this Work Session, is conservation agriculture. B. CONSERVATION AGRICULTURE Conservation agriculture includes principles from other methods, such as organic farming. What sets it apart, however, is a focus on protecting and enhancing natural resources. The Food and Agriculture Organization of the United Nations (FAO) defines conservation agriculture as: • Protecting and enhancing biodiversity • Providing environmental services • Promoting soil health • Conserving water and preventing pollution of waterways • Reducing the need for fertilizer or chemical inputs • Preparing for and adapting to climate change The FAO further describes conservation agriculture as: A farming system that can prevent losses of arable land while regenerating degraded lands. It promotes maintenance of a permanent soil cover, minimum soil disturbance, and diversification of plant species. It enhances biodiversity and natural biological processes above and below the ground surface, which contribute to increased water and nutrient use efficiency in addition to improved and sustained crop production. Studies on conservation agriculture (e.g. Kessam et al., 2009) show these practices improve ecosystem function and services, reduce greenhouse gas emissions, support adaptation for climate change, and reduce vulnerability through increased stability in production yields and incomes for farmers. Additional analysis indicates that conservation agriculture positively impacts biodiversity, decreases nutrient management needs, and increases the water holding capacity of soils (Kremen and Miles, 2012). These same ecosystem services drive restoration and management efforts across the City Natural Areas. July 28, 2020 Page 3 If the Department pursues conservation agriculture, it will require lease agreements with external partners that outline clear expectations for all parties. Natural Areas does not recommend prescribing how a partner may manage a site. However, it is recommended that agreements provide specific, expected outcomes and document partners’ progress toward meeting those goals. Expected outcomes for conservation agriculture efforts on natural areas include: 1. Shift from current monoculture to diversified plantings. 2. Integrate native seed mixes into grazed and not actively farmed areas. 3. Conserve water with innovative irrigation techniques. 4. Rebuild the soil body with improved nutrient composition. 5. Integrate native plantings throughout farmed areas to benefit wildlife including pollinators, birds, and small mammals which may include establishment of Department-led, small-scale restoration projects on portions of a site. Progress toward some outcomes, such as a shift from a monoculture to diversified landscape, will start to happen within the first year of establishing these partnerships. However, outcomes with long lasting conservation impacts, such as soil and habitat improvements, may require a longer timeframe to realize the full benefits of this shift. Given the extended timeline of landscape-scale, ecological change, as well as the upfront investments a potential partner may need to make, it is recommended that lease agreements have minimum five-year, and preferably 10- year, initial terms. C. HISTORICAL CONTEXT AND GUIDING POLICIES In the 2014 Natural Areas Master Plan, agriculture was recognized to provide many benefits, including supporting a local food base, contributing to the local economy, minimizing urban sprawl, and providing the community a connection to nature through agriculture. The plan recommends pursuing, “both resource conservation and agricultural activities on conserved working farms and ranches.” The Natural Areas Master Plan and Natural Areas site/zone specific Management Plans provide further guidance, detailing how agricultural management practices can support conservation goals. In addition, City Plan includes Strategies, Principles, and Policies related to local agriculture. These initiatives encourage the acquisition of open lands for agriculture/food production, promote sustainable soil- and pest- management practices, and urge support for new and existing local producers. The most relevant City Plan Principles include: • ENV 1.1 - PUBLICLY CONTROLLED OPEN LANDS Maintain a system of publicly controlled natural areas to maintain the integrity of wildlife habitat and conservation sites, protect corridors between natural areas, conserve outstanding examples of Fort Collins’ diverse natural heritage, and provide a broad range of opportunities for educational, interpretive and recreational programs to meet community needs. • ENV 1.3 - NATURE IN THE CITY Conserve, protect and enhance natural resources and high-value biological resources throughout the GMA by…identifying opportunities to integrate or reintroduce natural systems as part of the built environment to improve habitat in urbanized areas and expand residents’ access to nature. • SC 4.3 - COMMUNITY GARDENS AND MARKETS: Support cooperative efforts to establish community gardens; support and maintain new and existing local producers; and encourage retail opportunities, markets, and Community Supported Agriculture (CSA) shares. • SC 4.4 - REGIONAL FOOD SYSTEM: Work collaboratively with regional partners and producers to identify leadership and advisory opportunities for the regional food system. Consider developing coordination and advisory roles to help facilitate dialogue on regional food system issues. • SC 4.5 - COMMUNITY HORTICULTURE: Encourage and support the establishment of community gardens and other horticultural projects throughout the city to provide food, beautification, education, and other social benefits. Support the development of community-led horticulture projects and agricultural activities on appropriate City-owned lands (e.g., HOA-run garden plots in neighborhood parks, ongoing leasing for agricultural purposes, and farmers’ markets in public plazas and parking lots) and in both new and existing neighborhoods. July 28, 2020 Page 4 • SC 4.6 - SUSTAINABLE AGRICULTURAL PRACTICES: Promote sustainable soil- and pest-management practices such as Integrated Pest Management, Natural Resources Conservation Service (NRCS) soil health principles and organic farming practices. Land Conservation and Stewardship Board Input When staff presented an overview of conservation agriculture and two specific projects the Land Conservation and Stewardship Board (LCSB) expressed two primary concerns (Attachment 1). First, while supportive of expanded local food production, LCSB does not believe the Department’s mission and ballot language are well aligned with such efforts. Second, LCSB expressed concern that conservation agriculture could become a major land management practice for the Department. From the perspective of staff, conservation agriculture better reflects the Natural Areas Master Plan and City Plan than current agriculture management practices on these sites. In addition, agricultural conservation is referenced as a value in the ballot language. However, given the Board’s concerns, staff suggests establishing a decision framework to evaluate future opportunities. The management opportunity for a property will be evaluated based on the following criteria: 1. Property is not identified as a restoration priority within the Department’s 10-year restoration plan. 2. The site is currently managed by agricultural practices. 3. Water for irrigation is available to the site. 4. The property’s location supports thoughtful community access and engagement. This framework ensures Natural Areas properties that are a high or medium priority for restoration within the next 10 years do not become conservation agricultural projects. While the Department does not recommend placing a cap on the total acreage that may be managed through conservation agriculture efforts, if this would help LCSB and Council move forward with confidence, we suggest setting a limit that no more than 5% of the total acreage owned and managed by Natural Areas be considered for conservation agriculture projects. D. POTENTIAL PROJECTS Flores del Sol Natural Area Located within the Fossil Creek Management Zone near the intersection of Timberline and Carpenter Roads, Flores de Sol is a 150-acre natural area. This property was purchased in 2016 for its agricultural value, and its location within the Fort Collins-Loveland Community Separator. It is also valued because the Colorado Front Range Trail (also known as the Powerline Trail) goes through the site and connects the Fort Collins and Loveland’s paved trail systems. Thus, Flores del Sol is well positioned for community engagement with a conservation agriculture project. Natural Areas staff recommends implementing conservation agriculture farming practices on 85% of Flores del Sol. The remaining 15% (approximately 20-25 acres) would be conserved and enhanced through planting of native, pollinator-friendly grasses, shrubs, and forbs. In the summer of 2019, the Natural Areas Department released a request for proposals (RFP) to explore how a qualified partner might implement a diversified agricultural operations on the Flores de Sol Natural Area, along with other nearby properties in the Fort Collins-Loveland Community Separator. In response to this RFP, and subsequent proposal review process led by the City’s Purchasing Team, Poudre Valley Community Farms has emerged as a preferred partner for implementing a conservation agriculture project on this site, pending the results of this work session and subsequent lease negotiations. 2450 West Vine Street Purchased in 2019, this 35-acre property sits within the Fort Collins Growth Management Area at the intersection of West Vine Street and Taft Hill Road. The property was purchased for its agricultural value and its potential to support a conservation agriculture operation. Natural Areas staff recommends implementing conservation agriculture farming practices on 85% of 2450 West Vine Street (30 acres). The remaining 15% (approximately 5 acres) would be conserved and enhanced through planting of native, pollinator-friendly grasses, shrubs, and July 28, 2020 Page 5 forbs, with a focus on connecting to other nearby Natural Areas purchased by the Department in June 2020. Other properties Moving forward, the Department proposes utilizing conservation agriculture as a management strategy on Natural Areas designated for agriculture production in current management plans (i.e. Soaring Vista Natural Area), as well as future acquisitions, as appropriate. Conservation Agriculture and Grazing It is important to note, beyond agriculture projects on irrigated farmland, Natural Areas employs grazing as a critical grassland management tool. Given the significant differences in practice and objectives, properties managed in part with dryland grazing are not included in this proposal for conservation agriculture. E. EXAMPLES FROM OTHER COMMUNITIES The experience of municipalities across the region and organizations throughout the country provides important insight to guide Fort Collins’ efforts. • City of Boulder: Agricultural management plays an important role in Boulder’s Open Space and Mountain Parks program. Approximately one-third of Boulder’s 46,000-acre Open Space program is managed through agricultural operations. This includes practices such as prescriptive grazing, haying, and diversified farming. Of that acreage, 470 acres is dedicated to market production of products, such as vegetable, meat, and dairy, for local sale. (City of Boulder Open Space and Mountain Parks Master Plan, 2019) • Boulder County: Approximately 25,000 acres of agricultural land is owned and managed through Boulder County Parks and Open Space. Of this total land, 13,000 acres is irrigated cropland, with 3,500 acres certified or pursuing organic certification. Boulder County actively works with farm lessees to increase pollinator habitat, improve soil health, and implement water conservation techniques. (Boulder County Open Space and Parks Agricultural Resources 2018 Annual Report) • Montgomery County, Maryland: In 1980, Montgomery County established the Agricultural Reserve, encompassing 93,000 acres of rural farmland. This effort supported the County’s goal of maintaining the agricultural heritage of and limiting development in the region directly north of Washington, DC. As of March 2020, there are 172 farms preserved in Montgomery County under the Montgomery County Agricultural Land Preservation Program, totaling 9,946 acres. • Intervale Center: As a nongovernmental organization, the Intervale Center differs significantly from any potential project in the City. However, its leadership in conservation agriculture and as an incubator for the local food movement in northern Vermont provides many valuable insights. The Intervale Center manages 360-acres of farmland, trails, and open space just outside of Burlington, VT. Intervale works to support thriving farm business and places sound and sustainable stewardship at the center of its agricultural practices. F. SUMMARY OF ANTICIPATED OUTCOMES Applying a triple bottom line perspective to the proposal for conservation agriculture illustrates the full breadth of how these efforts may support both the Natural Areas mission and City Plan goals. Environmental Health Outcomes The Department seeks to improve conservation outcomes across all its properties, including those discussed in this proposal. Specifically, though conservation agriculture, the Department will: • Protect and enhance biodiversity by shifting landscapes from intensively farmed monocultures to diverse farming operations, Natural Areas anticipates positive outcomes related to biodiversity management for urban-adapted species. July 28, 2020 Page 6 • Provide environmental services by incentivizing agriculture partners to integrate habitat for beneficial insects, including pollinators. Additionally, Natural Areas is interested in better understanding the role of farmland in increasing carbon capture. Monitoring carbon, along with other soil nutrient levels, over extended timeframes will support this effort. • Promote soil health through thoughtful soil management and diverse crop rotation. Extending monitoring efforts to below ground nutrient levels and soil composition can demonstrate how Natural Areas supports conservation of habitat above and below ground. • Conserve water resources and reduce chemical inputs through support of lower intensity agriculture practices such as drip irrigation and reduced need for chemical application to agricultural fields. Economic and Social Health Outcomes While the Natural Areas mission does not directly address economic and social sustainability, conservation agriculture projects support these City goals. Anticipated outcomes include: • Increase availability and reliability of locally produced food, as well as number of community members engaged. Local producers Nic and Katie Koontz, owners of Native Hill Farm, estimate their urban farmland provides approximately 1,400 families with most of their annual vegetable needs. Expanding the acreage of small, family farms such as Native Hill, will significantly increase the number of community members served. • Provide fresh, nutritious foods to vulnerable members of the community. Innovative partnerships with organizations such as Larimer County Food Bank and The Vegetable Connection provide regional residents with access to thousands of pounds of fresh, locally grown fruits and vegetables. Farmers benefit from these partnerships, as well, through reduced price sale of produce that may otherwise go to waste. Regional organizations are eager to expand these opportunities given increased capacity and product from local farms. • Keep skilled workers local. Seasonal and year-round positions on small, diversified farms provide emerging farmers the opportunity to gain important experience needed to run a successful farm operation. After several seasons of work on an established farm, these young and eager farmers often set off to establish their own operations. Unfortunately, these emerging farmers face significant barriers to establishing their own operation including high costs of land, water, and getting established in the local market. By providing affordable access to land and through programs such as incubator plots, a City conservation agriculture project can help keep talented farmers in Northern Colorado. Through support for this project, the City can demonstrate its leadership and dedication to innovation. The City can stand apart from other communities as it considers the environmental, social, and economic opportunities of community-based agriculture initiatives. This work can signify a strong commitment to improved conservation outcomes on City-owned agricultural lands, while also supporting an increased supply of fresh vegetables for the community and ensuring family farms remain at the heart of our regional economy. ATTACHMENTS 1. LCSB Memo to Council (PDF) 2. Proposed Site Maps (PDF) 3. Powerpoint Presentation (PDF) Natural Areas Department 1745 Hoffman Mill Road PO Box 580 Fort Collins, CO 80522 970.416-2815 970.416-2211 - fax fcgov.com/naturalareas naturalareas@fcgov.com Memorandum To - City Council From - Land Conservation and Stewardship Board (LCSB) Date July 13, 2020 Subject - Local agriculture and food production on Natural Areas Property _________________________________________________________________________________ The Land Conservation and Stewardship Board recommends that City objectives for sustainable agriculture and food production be managed by departments other than the Natural Areas Department, and that resources and responsibilities for local food production be held deliberately separate from the Natural Areas Department and its City and County dedicated funding sources. Four specific recommendations are provided on the next page. The Fort Collins Natural Areas program selectively protects lands, by purchase or conservation easement, when that land has specific conservation attributes. Investments are made to preserve ecological resources, maintain viewsheds, and provide community separators. Agriculture can and does occur on Natural Area conserved land, but agriculture is not a primary conservation value; rather, it occurs for subsidiary reasons. This Board finds that acquiring or managing lands for agricultural purposes is a distraction from the core conservation mission of the Natural Areas Department, except when agriculture is in direct support of specific conservation attributes. It also conflicts with the language of ballot measures that provide funding for Natural Areas. Incidental agriculture Lands with ecological, viewshed, and community separator qualities frequently have agricultural histories. When the Natural Areas program protects these lands, continuation of agriculture is sometimes a condition of the sale or conservation easement. Agriculture is then an incidental activity following conservation, and not a primary motivator of protection or management. In some cases, agriculture is an effective means to maintain land condition at low cost, even though the ultimate conservation goal is restoration of the land to its natural condition; this is a proven stewardship strategy at Coyote Ridge. There is no need to change management of incidental agriculture. ATTACHMENT 1 Local food production The City’s goal of sustainable local food production is commendable. In a few places, Natural Areas may be appropriate places for pursuit of that goal. That does not mean that the Natural Areas Department should take on the role of planning the agriculture, establishing criteria, soliciting operators, managing contracts, monitoring agricultural operations, or any of the other myriad functions that will be required by a sustainable local food production program. Rather, the Natural Areas Department and this Board should advise about the appropriateness of proposed agricultural activities on protected lands. In 2019, the Natural Areas Department and the City issued a request for proposals (RFP) for local food production on Flores del Sol Natural Area, which is agricultural land near the Carpenter-Timberline intersection in south Fort Collins. Proposals have been received and evaluated, and a potential agricultural lease with Poudre Valley Community Farms is under consideration, for a ten-year term with optional five-year extensions. Recommendations 1. Continue the Flores del Sol project. The LCSB respects the advanced stage of the Flores del Sol procurement and believes it is in the best interest of the City to continue with the project until funds are available for restoration of this Natural Area. The balance among staff contract management costs, income produced by the lease, and avoided direct stewardship costs is unknown. Over time, the Flores del Sol experiment may help determine this balance. 2. Use the Flores del Sol experience as an opportunity to shift local food production responsibilities to a Department other than Natural Areas. 3. If so desired, develop a City strategy for lands dedicated to local food production, separate from Natural Areas and Natural Areas dedicated funding sources. 4. Future proposals for agriculture on Natural Areas should be vetted by this Board at early stages of consideration. CONSERVATION AGRICULTURE ON CITY OF FORT COLLINS NATURAL AREAS Natural Areas Overview and Proposed Project Sites 1 19TMap of City of Fort Collins Natural Areas, excluding regional sites ATTACHMENT 2 CONSERVATION AGRICULTURE ON CITY OF FORT COLLINS NATURAL AREAS Natural Areas Overview and Proposed Project Sites 2 19TMap of Natural Areas with active agriculture projects (as of 7/2020) CONSERVATION AGRICULTURE ON CITY OF FORT COLLINS NATURAL AREAS Natural Areas Overview and Proposed Project Sites 3 19TMap of potential conservation agriculture project sites CONSERVATION AGRICULTURE ON CITY OF FORT COLLINS NATURAL AREAS Natural Areas Overview and Proposed Project Sites 4 19TMap of Flores Del Sol Natural Area 19TMap of 2450 West Vine Street July 28, 2020 Natural Areas and Local Agriculture Julia Feder, Environmental Program Manager, Natural Areas Department ATTACHMENT 3 2 Questions for Council 1. What reflections does Council have on the concepts to apply innovative, conservation management practices to conserved agricultural land? 2. Is September 2020 a reasonable timeline to bring back for Council review and potential approval two conservation agricultural leases for the sites discussed in this work session? 3 3 OVERVIEW Tonight’s presentation: 1. Background 2. Conservation Agriculture 3. Potential Projects 4. Anticipated Outcomes 5. Dialogue about proposal 4 4 BACKGROUND The Department seeks to better align agricultural management practices on natural areas with its mission and in support of the City’s goals related to local, sustainable agriculture. 5 Conserve and enhance lands with natural resource, agricultural, and scenic values BACKGROUND 37,000acres 6 Natural Areas Overview 7 Natural Areas Overview 12,000acres 8 Natural Areas Overview p5roperties managed with active ag projects 9 Agricultural Management CONSERVATION AGRICULTURE 10 11 11 Services benefit biodiversity without adding agricultural value Synergy between ecosystem services, agriculture, and biodiversity management Services do not benefit farmers or biodiversity Services benefit agriculture operations without adding biodiversity value Ecosystem service Macfadyen, S., et al, 2012 Conservation Agriculture Assessment Tool 12 12 Services benefit biodiversity without adding agricultural value Synergy between ecosystem services, agriculture, and biodiversity management Services do not benefit farmers or biodiversity Services benefit agriculture operations without adding biodiversity value Ecosystem service Macfadyen, S., et al, 2012 Conservation Agriculture Assessment Tool 13 13 • Diversify crops • Apply water saving techniques • Rebuild soil body • Integrate native plantings • Establish micro-restorations Proposed Management Practices 14 Conservation Agriculture Decision Matrix 1. Property is not identified as a restoration priority. 15 Conservation Agriculture Decision Matrix 1. Property is not identified as a restoration priority. 2. The site is currently managed for agriculture. 3. Water for irrigation is available 4. Property’s location supports thoughtful community access. 16 Conservation Agriculture Projects 3opportunities: • 2560 W Vine Street • Flores de Sol • Soaring Vista 17 POTENTIAL PROJECTS 18 18 Flores de Sol 150-acre natural area • 25 acres of diversified vegetable farming • 90 acres can support grazing and flex fields • Small-scale restoration • 10-year lease with Poudre Valley Community Farms; renewable for additional five-year terms 19 19 West Vine Property • 25-acre diversified vegetable farming • Integrate wildlife habitat through integrated pollinator plantings and small- scale restoration on edges • Small scale restoration • RFP and proposal review Summer 2020 ANTICIPATED OUTCOMES Environmental, Social, & Economic Benefits 21 Environmental Benefits • Protect and enhance biodiversity • Increase environmental services • Promote soil health • Conserve water, prevent pollution of waterways, and reduce chemical inputs 22 Social Benefits • Increase availability and reliability of locally produced food • Provide fresh, nutritious foods to vulnerable members of the community • Connect community members to nature in new ways 23 Economic Benefits • Keep skilled workers local • Provide emerging farmers with opportunities to gain experience • Reduce barriers for young farmers to start their own agricultural • Provide affordable access to land 24 “This is an opportunity to build community through access to fresh and nutritious, locally grown food.” 25 Questions for Council What reflections does Council have on the concepts to apply innovative, conservation management practices to conserved agricultural land? Is September 2020 a reasonable timeline to bring back for Council review and potential approval two conservation agricultural leases for the sites discussed in this work session? THANK YOU!