Section A-C
Cumberland County Tributary Strategy
Introduction to Cumberland County
Established in 1750, Cumberland County encompasses 550 square miles of south central Pennsylvania.
Over 210,000 people reside in the County, spread out across 33 municipalities. Carlisle is the County
seat. Adams, Dauphin, Franklin, Perry, and York counties are all neighboring counties.
Cumberland County has distinct geographical features defining its boundaries. To the north, the Blue
Mountains separate Cumberland County from Perry County. To the south, the South Mountain Range,
including Michaux State Forest, separates the County from Adams and York Counties. The eastern
boundary of the County is defined by the Susquehanna River and separates Cumberland County from
Dauphin County and PA’s state capital, Harrisburg. The western border of the County with Franklin
County is less distinct. However, the Borough of Shippensburg serves as the adjoining feature between
the counties, with one portion of the municipality in Cumberland County and a portion in Franklin County.
Across Cumberland County, three regions can be defined: the eastern, central, and western regions.
The eastern region of the County, known locally as the “West Shore” (of the Susquehanna), contains the
densest development of the County. This region, which includes the boroughs of Mechanicsburg, Camp
Hill, Lemoyne, New Cumberland, and Wormleysburg, is rapidly approaching a completely developed
condition. Commercial strip malls are common in this region, particularly around the major travel
corridors.
The central region of the County contains one major borough, Carlisle. Also included in this region are
the boroughs of Boiling Springs, Mt. Holly Springs and several townships which provide residents with a
small town or rural living environment. However, the townships in this region are receiving significant
development pressure. Specifically, commercial and industrial businesses desire locations near the major
thoroughfares of I81, I76, and US Route 11. Upper-middle class residential development is very common
in this region’s townships, providing residents with a rural setting and easy access to urban conveniences.
Both commercial and residential development continues to push into the western region of the County.
The western region of the County, with the exception of Shippensburg, is still primarily rural. This region
is characterized by small villages, woodlots, rolling hills, and an agricultural landscape. Development
pressure in this area is centered on the borough of Shippensburg and its surrounding townships.
Shippensburg also is home to Shippensburg State University which seasonally boosts the town’s
population and local economy.
Due to the highway system, Cumberland County is a major thoroughfare for the trucking and shipping
industry. This same infrastructure makes locating a business in Cumberland County very attractive to
potential suitors. Located between Pittsburgh and Philadelphia, Carlisle is just a short drive from the
state capital of Harrisburg, York, and the Baltimore-Washington Beltway. From New York City southward
to Memphis and Atlanta and westward to Chicago, Cumberland County can easily access the major cities
on the East Coast and in the Midwest.
Boasting a 2.6% unemployment rate, the lowest in Pennsylvania, Cumberland County is definitely a great
place to live and work. However, economic progress and development has a price – agriculture and
natural resources within the County are subjected to greater demands and increased stress as the County
prospers.
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Section A-C
Cumberland County Tributary Strategy
The Conservation District
The Cumberland County Conservation District was established in 1953 after a group of local farmers
interested in the conservation of their soil and water resources made their wishes known to the County
Commissioners. Today, with eight full time employees, the Conservation District serves as the primary
watchdog over the soil and water resources of the County. As the name implies, the Cumberland County
Conservation District is an office of County Government. The Conservation District, authorized by the
Legislature under Act 217 "Conservation District Law" and guided by a board of local volunteers, is
committed to minimizing the impact of human activities on and enhancing the natural resources of the
county through a combination of enforcement of laws and regulations, education and cooperative
agreements with government agencies and private individuals.
As the County continues to thrive, it will become increasingly more important to conserve and protect the
natural resources within the county. Ag Land and Open Space Preservation, Water Quality and Quantity,
Forested Areas, Wildlife Habitat, and Recreational Areas are all natural resources that Cumberland County
citizens have expressed an interest in protecting!
Cumberland County Agriculture
Facts and General Trends
Agriculture is an important economic activity in Cumberland County. One measure of economic
importance is production values. According to data from the Pennsylvania Agricultural Statistics Service
(PASS), the total value of production agriculture in 2001 in Cumberland County was $106,671,000. In
2001, the Dairy Industry was the leading contributor with 52%, or $55,824,000, of total production. The
poultry and livestock industry contributed nearly 27%, with $28,680,000 of production. (See Figure 1)
Employment is another indicator of economic importance. Based on data from the Bureau of Economic
Analysis (BEA), county farm employment totaled 1603 jobs in 2000. This represents a 19% decrease
since 1969. In contrast total county employment has increased 133% since 1969 to 158,652.
This employment data indicates a trend away from agriculture and towards other areas of the local
economy. This is consistent with many areas of the Country that were originally settled as agrarian
cultures. As technology progressed, workers gained new skills and found new opportunities, often in
higher paying less strenuous jobs than working on the farm. Many of the new job opportunities were
created to service the agricultural industry. However, even with the creation of new jobs and services,
farming continued to contribute to most family incomes well into the 20th century.
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Section A-C
Cumberland County Tributary Strategy
Figure 1
2001 Farm Receipts by Product
(thousands of dollars)
$9,093.00
$5,906.00
$28,680.00
$7,168.00
$55,824.00
Dairy
Field Crops
Horticulture & Mushrooms
Poultry & Livestock
Source: PA Agricultural Statistics Service an d Penn State
Other
Today, job opportunities abound in Cumberland County – the transportation and shipping industry, retail
industry, manufacturing industry, and service industry are all alive and well in the County. However,
Agriculture still plays a vital role in our local economy. For example, because farms need to purchase
inputs and services beyond the farm, local jobs are created to service the Ag industry. Similarly farm
workers stimulate the local economy by using their income to purchase local goods and services.
According to the BEA and the PSU Cooperative Extension, these ripple effects are often referred to as
Economic Multiplier Effects. The BEA estimates that for the 1603 agriculture jobs in Cumberland County,
another 661 jobs exist in the local economy due to the agriculture ripple effects. Simply stated, for every
agricultural job in the county, another 0.4 local jobs are supported.
By studying statistics from 1997-2002, some insight into the agricultural trends in Cumberland County is
gained:
Over this time period, 158 county farms went out of business. Specifically, the total number of farms in
the county decreased from 1,274 to 1,116 (See Figure 2). Several reasons may exist for the decrease in
the number of farms over this time period:
1. Farm operating expenses and costs of living were increasing while milk prices, the dairy
industry’s mainstay, were decreasing or remaining stable.
2. Over any given time period, operators are forced to deal with weather conditions that can
negatively affect production. Weather conditions can compound other problems such as
lowered milk prices, loss of cattle, and higher than expected repair, replacement, and
renovation costs. These are just a few of the reasons farm budgets can slip into the red –
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Section A-C
Cumberland County Tributary Strategy
continued operation under one or more of these conditions eventually forces operators out of
business.
3. Due to the increased development pressure in Cumberland County, combined with
increasingly tight profit margins, it is often more profitable for an operation to sell the land
rather than farm it.
4. Natural attrition – some farms simply go out of business because the primary operator has reached
retirement age and has no children or heirs interested in continuing the farming operation.
Figure 2
Cumberland County Farm Numbers vs. Average Farm Size
1300
1250
1200
1150
Total Farm Numbers
Average Farm Size (Acres in tenths)
1100
1050
1000
1987
1997
2001
2002
Source: Pennsylvania Agricultural Statistics
1987 - Cumberland County begins to participate in the Bay
The total number of farms decreased by 12 percent over this time period but total farm acreage only
decreased by 6 percent. This is primarily due to the 7 percent increase in the remaining farms size (from
120 acres to 128 acres), suggesting an overall trend for operations to expand. Total farm acreage in
2003 was approximately 142,500 acres. A gradual increase in farm size may be occurring for several
reasons:
1. Remaining farms may be expanding in order to maintain or improve total productivity. With
increased operating costs and minimal increases in commodity revenues, some expansion
may be necessary in order to maintain current profit levels. Most expansion occurs in the
form of more buildings and more animals. Many times additional land is needed to provide
adequate feed for an expanding herd and for proper animal waste disposal.
2. Due to increased regulatory and development pressure, many existing operations may view
purchasing additional farmland as a necessary asset for continued operation in the future.
Only the most efficient farms have the necessary capital and resources needed to purchase
additional farmland. If regulatory pressure and development pressure continue to increase
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Section A-C
Cumberland County Tributary Strategy
in the future, you can expect the total number of farms will continue to decrease while the
average farm size and farm efficiency will increase.
Although the total number of farms has decreased, the Average Market Value of Production per farm has
increased by 15%. This data also suggests remaining farms may be operating more efficiently than the
farms that have gone out of business since 1997. This is consistent with what one would expect to see
in any business – as competition for resources and consumers increases, the most efficient operations
begin to rise to the top.
This trend, greater overall production levels with fewer farms (improved farm efficiency), may have
several explanations:
1. Improvements in technology can lead to greater efficiency. For example, improvements in
animal science and animal nutrition result in higher levels of milk production in dairy cattle.
This is illustrated when comparing cattle numbers and production levels from 1985
(Beginning of the FAFP – Bay Program) to 2001. The county wide average milk production
per cow in 1985 was 14,500 pounds versus 19,000 pounds in 2001 (See Figures 3,4).
Similarly, improvements in farm equipment, seed quality, nutrient management, feed
storage, cattle comfort, labor efficiency, etc, can all lead to increased levels of production.
Farmers continually strive to do more with less!
2. Cumberland County is beginning to see a trend for farmers to supplement their income
through increased custom farming. Many times, it is more cost efficient for an operation to
employ custom harvesters, planters, manure haulers, and even custom growers for young
stock than to use their own resources and time to perform the task.
3. Thirdly, some farming operations are generating additional revenue by adding another
dimension to their operations. For example, dairy or beef farmers may erect a poultry house
in order to generate an additional source of revenue.
4. Some county farmers increase their productivity through direct marketing to local consumers
or niche markets. For example, by promotion through local campaigns, county fairs, or local
farmers markets, producers may receive greater than average revenues from consumers
interested in buying local products.
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Section A-C
Cumberland County Tributary Strategy
Figure 3
Number of Milk Cows vs. Average Milk Production Per Cow
25000
20000
15000
Number of Milk Cows
Average Milk Production
( lbs/cow-yr)
10000
5000
0
1985
1988
1997
1998
Source: PA Agricultural Statistics Service
1999
2000
2001
1985 - PA FAFP established
Figure 4
Number of Milk Cows vs. Total Milk Production
35500
25000
35000
34500
20000
33500
Milk Cows
15000
33000
32500
10000
Milk Production
34000
32000
5000
0
31500
Number of Milk Cows
31000
Total Milk Production
(thousands)
30500
1985
1988
1997
1998
1999
2000
Source: PA Agricultural Statistics Service
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2001
Section A-C
Cumberland County Tributary Strategy
Cumberland County Anabaptist Communities and Agriculture
Cumberland County is home to large populations of Old Order Mennonite, conservative Mennonite, and
many Amish families. These communities are located mainly in the western region of the county, in the
townships surrounding Newville, Newburg, and Shippensburg. Over the past few years these
communities have been steadily increasing. Unfortunately, there are no exact numbers as to how many
“Plain” sect farms are located in Cumberland County.
Many times, these communities are the exception to the general trends in county agriculture, specifically
as they relate to technological advances. For example, the Amish generally use draft horses when
working in the fields; the conservative Mennonite farmers use steel wheeled tractors for farm work.
Amish generally do not use electricity from public utility lines whereas some Mennonite farms utilize
electricity but avoid certain “luxuries” like television or radio.
Also, contrary to the majority of the County, almost all plain sect families have close ties to agriculture.
Although many Anabaptist men are involved in other trades such as woodworking or general construction
(depending upon their sect and specific religious beliefs), agriculture remains a vital part of each family
and community.
The size of these operations often varies between the different plain sects: For example, the average
size of an Amish dairy is 50-60 acres with 40-50 head of milking cows. In contrast, a Mennonite (Wenger
Mennonite) dairy may consist of 80-100 head of milking cows and a larger number of crop acres.
Management between the different groups also varies widely: Amish dairymen generally stick to a corn
and alfalfa rotation with conventional tillage (moldboard plow). Corn is usually harvested for silage
without the use of cover crops. Livestock are generally turned out on a regular basis and manure is
usually daily hauled. Few Amish farmers have a conservation plan or nutrient management plan. In
contrast, the Wenger Mennonite dairymen grow a wider range of crops from sudex and speltz to more
traditional crops such as corn and alfalfa. Although some operators still utilize a moldboard plow,
reduced tillage and conservation tillage are more common. It is not uncommon for dairy cattle to be
confined and a waste storage structure to exist on the farm. Additionally, these operators are usually
willing to have a conservation plan developed and may participate in USDA programs.
Although the Amish communities in Cumberland County are steeped in tradition and not as open to
change, recent years have seen some experimentation with conservation practices. Conversely, the
Wenger Mennonites tend to be fairly progressive and generally open to new ideas and conservation
practices. Mennonite families (other than the Wenger Mennonites) operate their farming operations the
same as “English” farmers.
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Section A-C
Cumberland County Tributary Strategy
Similar to traditional farming operations, there is a trend for farmers associated with the Anabaptist
church to diversify their operations. It is very common for Anabaptist farmers to add produce to their
operations. Two produce auctions in the Shippensburg area provide an easily accessible outlet for the
produce and attract both local buyers and business from the Washington D.C. area.
Over the past five years the Cumberland County Conservation District has been very successful in
developing a good working relationship with both the Amish and Mennonite farmers. We have seen an
attitude change in many of the operators toward working with “government” agencies. They are more
open to receiving assistance from our office. In all cases the operators are open to information and
usually in very good attendance at field days and farmer meetings. It is vital that the Conservation
District continue to maintain a good relationship with the plain communities. Unlike most farming
operations, plain farmers are generally more resistant to change, less likely to sell their farms (at least for
a non-agricultural use), and more likely to operate a “traditional” family style farm. As development
pressure in the County increases and the number of total farms decreases, the plain farms in the western
region of the County may begin to play a bigger role in the Conservation District’s agricultural programs.
Agricultural Trends and the relationship to Water Quality and Best
Management Practices (BMPs)
As Agriculture continues to change in Cumberland County, it is important for the Conservation District to
understand how these trends may affect the work at hand. For example, consider the following trends
previously discussed:
1. Increasing development pressure in across Cumberland County.
2. Tighter profit margins in the dairy industry.
3. General trend for operations to expand.
4. Greater farm efficiency and diversification.
5. Improved technology.
6. Increasing regulatory pressure.
Based on these factors, farming operations can be expected to continue to push for higher productivity
and improved efficiency. Generally, as productivity increases, so does the demand on the resources
utilized. From a conservation standpoint, it is important to understand that this increased demand on
resources includes soil and water resources. In short, as the County and the dairy industry progress, so
does the stress placed on the natural resources.
For example, as illustrated previously in Figure 3, milk production per cow has increased substantially
since the beginning of the Bay program. When milk production increases, so does waste production (See
Figure 5). In other words, if a farmer has increased milk production levels in the last 20 years (and most
have) and cattle numbers remain the same, manure production will have increased. Although the total
number of farms and milk cows has decreased in the county, higher production levels are maintaining
relatively stable amounts of manure production (See Figure 6).
On most dairy operations, manure handling and nutrient management present greater challenges today
than 20 years ago. Even though the total amount of manure produced has decreased since 1985,
production of manure today is generally concentrated over smaller areas (fewer farms with higher
production). Over application of this waste can create soil quality problems, agronomic problems, water
quality problems, and even jeopardize animal and human health.
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Section A-C
Cumberland County Tributary Strategy
Figure 5
Milk Production and Manure Production
20000
49500
18000
49000
16000
48500
14000
12000
47500
10000
47000
8000
46500
6000
Manure Production
Milk Production
48000
Average Milk Production
( lbs/cow-yr)
46000
4000
45500
2000
0
Average Manure
Production(lbs/cow-yr)
45000
1985
1988
1997
1998
1999
2000
2001
Manure Calc's Based on Formula from ASAE
Source: PA Agricultural Statistics Service
1300
600000
1250
500000
1200
400000
1150
300000
1100
200000
1050
100000
1000
Total Manure Production
# of Farms
Figure 6
Farm Number vs. Total Dairy Manure Production
(milk cows only)
Farm Numbers
Total County Manure
Production (tons)
0
1985
1988
1997
1998
1999
2000
2001
2002
Source: PA Agricultural Statistics Service
Manure Calc's Based on Formula from ASAE
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Section A-C
Cumberland County Tributary Strategy
Additionally, conflicts between agricultural producers and the non farming community can be expected to
continue and most likely increase. As the farming community gradually becomes a smaller sector of the
County, the concerns and issues presented by the general public will have a greater impact on
regulations and farm management.
The Core Conservation Practices chosen for this Strategy are all practices designed to alleviate some of
the problems expected as a result of current trends in Cumberland County’s agriculture. Each of these
core practices and their relevance to county agricultural trends is discussed in greater detail in Section C
which contains the “working components” of the Strategy.
Cumberland County’s Open Space Preservation Plan
The Cumberland County Planning Commission worked with the Open Space Steering Community and a
consulting team of landscape architects and planners to develop the Open Space Preservation Plan. One
of the key components of developing the plan was to assess public opinions, perceptions, and the level of
support for open space preservation within the County. From this public survey, it was evident that open
space preservation is important to the people of Cumberland County.
As part of the plan development, seven goals were established by the Planning Commission. Two of
these seven goals were:
1. Preserve the agricultural lands of Cumberland County.
2. Conserve the natural resources of Cumberland County.
Three steps summarize implementation of the plan over the next 10 years. All three of these steps make
a specific commitment to Agricultural Preservation by setting specific financial and acreage preservation
goals. Cumberland County’s Open Space Preservation Plan demonstrates a commitment by County
Government, citizens, and organizations to protect agricultural lands and natural resources within the
County. Additionally, Cumberland County realizes economic development will remain an important part
of the County’s vitality. However, Cumberland County is working hard with its municipalities and citizens
to target growth areas, creating smarter development with healthy natural resources and a strong
agricultural community.
In order to achieve the goals of the County’s Open Space Preservation Plan, the Conservation District
must continue to be active within the agricultural community. Basically, this means that continued
education, technical assistance, and cost share assistance must continue to be an important part of the
District’s mission. Continued funding for program administration and implementation is an absolute
necessity. As part of Cumberland County’s Chesapeake Bay Tributary Strategy, the Conservation District
will strive to implement plans and practices which compliment and are consistent with the County Open
Space Preservation Plan.
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Section A-C
Cumberland County Tributary Strategy
Introduction to the E&S Programs
The Conservation District administers the Chapter 102 E&S program through a signed delegation
agreement with the Department of Environmental Protection (DEP), Bureau of Watershed Protection.
The emphasis of the overall program is the conservation of soil and water resources. PA’s Chapter 102
program is derived from the Clean Stream’s Law, but meets the standards established by the U.S.
Environmental Protection Agency for the National Pollution Discharge Elimination System (NDPES)
permitting program.
The following chart, Figure 7, shows “Plan Reviews vs. Project Acres”. Although there is a general
decrease in the number of plans received, plan acreage is relatively stable or increasing:
Figure 7
E&S Plan Reviews and Project Acres
4000
250
3500
200
2500
150
2000
100
1500
1000
50
500
0
0
1997
1998
1999
2000
2001
2002
11
2003
2004
Acres
Number of Plans
3000
Plan Reviews
*Total Project Acres
Section A-C
Cumberland County Tributary Strategy
Two general trends were identified by the E&S staff, which has a combined experience of over 20 years:
1. Improved technology is being implemented in the Chapter 102 program and the NPDES
program.
2. Education of contractors, townships, and municipalities is improving.
In the past, under Phase I NPDES permitting, E&S BMPs generally consisted of a stormwater detention
basin located in the lowest corner of the development project. However, the implementation of Phase II
NPDES regulations has spurred innovative BMP technology and requires some projects to include Post
Construction Stormwater BMPs. Post Construction Stormwater BMPs include infiltration practices such as
wet ponds and constructed wetlands. Innovative approaches are also used to achieve desired
infiltrations rates and filtration. These new Stormwater BMPs are eligible practices under PA’s
Chesapeake Bay Tributary Strategy.
The Conservation District is also working hard to educate townships and municipalities. To date,
Memorandums of Understanding (MOUs) have been signed with 23 of 33 townships and municipalities.
The MOU is an agreement between the Conservation District and the township/municipality intended to
inform each party of their responsibilities under the Chapter 102 E&S Program.
Act 167 plans have also been developed for several watersheds in Cumberland County. Act 167 plans are
stormwater management plans based on watershed boundaries. Watershed based plans make more
sense than planning based on municipality boundaries, which often include only part of a watershed and
may contradict other plans within the same watershed. Under an Act 167 plan, each municipality in the
watershed must approve of the plan.
Some municipalities in the County have been designated as MS4’s under Phase II of the NPDES program.
This designation is based on population density (higher population densities = MS4’s). Municipalities
receiving this designation are required to implement six minimum control measures designed to protect
water resources from illegal discharge and stormwater runoff.
As the county continues to experience overall growth, it becomes increasingly important to make sure
that resources are protected according to the regulations. Due to intensifying development pressure and
greater awareness for environmental protection, the E&S and NDPES programs continue to be two of the
District's most demanding programs. Through these programs, the District reviews and approves E&S
control plans for earthmoving sites. Inspections of the sites are conducted to assure the plans are
properly implemented, controls are installed, and sequences are followed. By doing this, the District
strives to meet its goal of minimizing accelerated erosion and sediment pollution to the waters of the
Commonwealth as a result of earthmoving activities.
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