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La maîtrise du foncier et de son usage pour développer l’agriculture biologique

ramieres 3becs+++

La politique foncière, un levier puissant pour le développement des territoires

La politique foncière est une clé du développement économique, urbain, rural et de la préservation des espaces naturels. Envisagée sur un long terme, elle permet de mettre en œuvre les ambitions du développement durable et d’orienter les modes d’occupation du sol et les activités qui y seront associées, notamment l’agriculture.

Ainsi, en plus des outils d’observation et de planification, l’animation et la maîtrise foncière via l’acquisition sont des outils permettant aux collectivités de préserver les terres agricoles sur le long terme tout en leur garantissant un usage respectueux des ressources à travers l’agriculture biologique (protection d’un captage d’eau potable, biodiversité, paysage etc.).

L’acquisition du foncier (terres, bâtiment) représente souvent un premier pas concret, permettant de montrer l’engagement de la collectivité, et efficace, avec des effets visibles à court terme (installation d’un agriculteur biologique ou conversion, développement d’une activité de transformation, magasin de producteurs etc.).

A plus long terme, le choix de la maîtrise foncière gagne à s’articuler à différentes échelles pour mobiliser plus aisément l’ensemble des dispositifs, outils et moyens propres à chaque acteur ou collectivité territoriale : droits de préemption et moyens d’investissement, animation auprès des agriculteurs et appui aux dynamiques émergentes en termes de débouchés, introduction de produits bio dans la restauration collective, etc.

Comment faire ?

En amont de l’acquisition

1. Élaborer le cadre général du projet en définissant les enjeux, priorités et objectifs autour du foncier : protection de la ressource en eau, création d’emplois, approvisionnement de la restauration collective, etc. L’objectif premier est de définir la zone à acquérir (caractère stratégique, surface, types de productions, porteurs de projet, débouchés, etc.) et les futurs partenariats avec les exploitants. Ce cadre général (pré-projet) peut être réalisé en partenariat avec des structures d’accompagnement du réseau bio (préconisations et retours d’expériences) et en concertation avec la population et les acteurs locaux.

2. Identifier le foncier

Différents outils sont mobilisables :

  • état des lieux par la collectivité des terres disponibles : propriétés communales ou du Centre Communal d’Action Sociale (CCAS), biens sans maître (sans propriétaire connu et/ou contributions foncières non acquittées depuis plus de 3 ans), terres incultes (friches ou parcelles à l’abandon), etc.
  • repérage de biens fonciers avec la Société d’Aménagement Foncier et d’établissement Rural (SAFER), qui peut apporter différents services à la collectivité notamment par le biais d’un conventionnement,
  • information des opportunités foncières lorsque la SAFER a connaissance des projets de cession ou futurs appels à candidatures,
  • observatoire du marché et surveillance du marché foncier (transmission directe des notifications de vente) via la signature d’une convention Vigifoncier,
  • études foncières et diagnostics de territoire (repérage “cédants-repreneurs” notamment) sur les structures agricoles d’un territoire pour anticiper la disponibilité d’un bien,
  • veille citoyenne mobilisant les habitants, agriculteurs, élus et organismes de développement agricole.

Cette animation, proposée par Terre de Liens dans différentes régions, permet de repérer des terres disponibles ou bientôt en vente. Outil de concertation et d’implication des différents acteurs, la veille citoyenne permet et de sensibiliser la population aux problématiques et enjeux liés à l’agriculture, notamment au foncier et de l’associer à la stratégie foncière et agricole locale. Cet engagement des habitant dans la construction et la mise en œuvre d’une stratégie foncière peut prendre sa source dans l’organisation d’événements publics (salons, expositions, débats, projections, portes ouvertes agricoles, etc.) ou par la mise en place d’un dispositif dynamique de recueil et de diffusion d’informations (groupes locaux d’échanges, observatoire).

3. Évaluer le potentiel des terres pour la mise en place d’une production bio et commencer à identifier des porteurs de projet

Une fois les terres à acquérir identifiées, la réalisation d’une étude de faisabilité (agronomique, réglementaire, environnementale) s’avère nécessaire pour connaître le potentiel et les contraintes du site, les activités possibles et les plus compatibles, ainsi que les conditions indispensables et besoins d’aménagement (viabilisation, irrigation, électricité, accès, bâtiment, etc.).

En parallèle : commencer à identifier/rechercher des porteurs de projet intéressés par le secteur et les orientations de la collectivité de manière à pouvoir dimensionner ensemble les aménagements à réaliser.

SAM_0519

Acquisition

Si les biens sont en vente :

  • achat à l’amiable entre le vendeur et la collectivité (sans intermédiaire ou via un conventionnement et/ou une négociation d’un opérateur foncier comme la SAFER),
  • achat contraint notamment par l’usage du droit de préemption (via la SAFER ou les collectivités compétentes, via le droit de préemption en Périmètre de protection et de mise en valeur des espaces Agricoles Et Naturels périurbains (PAEN) s’il a été instauré, via le droit de préemption en périmètre de protection rapprochée, en Espace Naturel Sensible, en Zone d’Activité Différée, ou encore via le Droit de préemption urbain).

Si les biens ne sont pas en vente :

La collectivité peut obtenir à son profit, sous forme d’une cession forcée, le transfert d’un bien immobilier en vue de la réalisation d’un objectif d’utilité publique et moyennant le paiement d’indemnités (valeur vénale des terrains et indemnité d’éviction de l’exploitant). La procédure d’expropriation n’est lancée que si le propriétaire et la puissance publique ne sont pas parvenus à se mettre d’accord sur une procédure amiable (contrat de droit commun) et qu’il peut être justifié le caractère d’utilité publique du projet.

Co-acquisition

Certains opérateurs fonciers d’utilité publique comme la Fondation Terre de Liens peuvent permettre la mise en œuvre de différents montages pour une acquisition conjointe avec des collectivités territoriales. Cette modalité de maitrise foncière partagée (ou déléguée) peut recouvrir de nombreux avantages :

  • un effet levier des finances publique par la mobilisation conjointe de la population locale (épargne citoyenne, dons, mécénat d’entreprise)
  • une délégation de la gestion patrimoniale et locative assumée par Terre de Liens
  • une garantie statutaire de préservation des terres agricoles et de la ferme dans le très long terme, au-delà d’éventuels changements politiques

Échanges parcellaires

Il est parfois difficile pour les collectivités et syndicats d’eau potable de faire changer les pratiques agricoles sur les périmètres de captage. Dans ce cas-là, elles peuvent mettre en place des dispositifs d’échange parcellaire. L’échange parcellaire consiste à proposer au producteur d’exploiter une autre parcelle afin qu’il libère celle située dans un périmètre de protection. L’agriculteur peut ainsi regrouper son parcellaire à proximité du siège d’exploitation. Une fois la parcelle libérée, la collectivité peut y encadrer les pratiques par un bail rural environnemental avec un agriculteur volontaire. L’échange parcellaire nécessite néanmoins un dialogue et une coopération solides entre les agriculteurs et les collectivités. La mise en place d’une stratégie de long terme par la constitution progressive de réserve foncière par la collectivité facilitera ces regroupements.

aménités positives de la bio

Après l’acquisition

1. Réaliser les travaux d’aménagement sur les terres afin que la ferme achetée puisse accueillir le projet agricole identifié dans les meilleures conditions

2. Louer les terres ou les bâtiments aux porteurs de projet ou agriculteurs via un Bail Rural Environnemental (BRE) avec la clause “respect du cahier des charges de l’AB”. Dans le cas d’une zone dédiée à l’installation de plusieurs producteurs, il est préconisé de définir de manière concertée un règlement intérieur (établissement de règles de cohabitation, de responsabilité et de fonctionnement entre les différents acteurs).

3. Mettre en place un accompagnement individuel et collectif des agriculteurs installés et/ou convertis pour sécuriser leur installation ou conversion, favoriser l’ancrage territorial des nouveaux installés et renforcer les dynamiques collective (échanges de pratiques, prêts de matériel …).

4. Pour favoriser l’ancrage de producteurs bio dans le territoire, organiser des actions d’appui à la valorisation locale des productions biologiques issues du secteur : étude de débouchés, mise en relation offre/demande, approvisionnement de la restauration collective et des achats alimentaires de la collectivité, promotion auprès des habitants des activités créées.

Gouvernance

L’implication des élus et des différents services en interne est primordiale, tout comme une concertation avec le milieu agricole et les habitants. Les différents acteurs concernés par ces sujets (protection de l’eau, création d’activités économiques, agricoles, consommateurs et citoyens …) ont, eux aussi, une expérience à apporter. L’association de ces acteurs peut revêtir de nombreuses formes : concertation pour la co-conception du projet, comité de pilotage et de suivi du projet, participation au jury pour la sélection des candidats, convention de partenariat pour soutenir le projet ou réaliser des études et/ou actions, observatoire foncier et veille foncière etc. [i]

Points de vigilance et clés de réussite

  • Mettre en place une réelle politique de gouvernance foncière pour trouver, acquérir ou porter et surtout pérenniser le foncier agricole et inscrire ses ambitions dans les outils de planification (Agenda 21, PLU, SCoT, PAGD, etc.).
  • Rassembler et mobiliser les acteurs du développement local et agricole (comité de pilotage, groupes de travail, etc.).
  • Mettre en place un observatoire foncier / relevé des terres communales et des zones à enjeu (protection de l’eau potable, zones périurbaines à pression foncière élevée, etc.).
  • Bien définir les objectifs en amont en cohérence avec la politique et les besoins locaux : quelles productions favoriser (légumes, fruits, viande, etc.), quels débouchés (paniers, restauration collective, etc.), quels enjeux (création d’emploi, conversion, installation, etc.), afin de déterminer le profil de la zone et du projet.
  • De tels projets requièrent des investissements (temps, argent, énergie) non négligeables. Les négociations et les montages des dossiers peuvent être assez longs (parcours à l’installation, dérogations, financements…)

Expériences réussies

Observatoire, réseau et veille pour mieux gérer le foncier et les installations : l’exemple du PNR du Livradois-Forez

Bien connaître son territoire (type d’occupation, surfaces, durée des activités et perspective d’évolution) est une condition de base pour anticiper les mouvements fonciers et aménager les différentes zones selon les enjeux. Différents outils existent et peuvent être utilisés conjointement comme les études foncières de la SAFER ou la veille foncière de Terre de Liens (implication des habitants, agriculteurs, etc.). Il semble cependant qu’une animation et analyse dynamiques apportent le plus d’efficacité pour une politique et des actions en lien avec le terrain. D’autres organisations peuvent être imaginées, à l’instar du “réseau d’installation foncier” constitué par des communes du PNR du Livradois-Forez (63). Ce travail a permis de mettre en commun les données techniques et cartographiques sur l’état du territoire (surfaces cultivées, départs en retraite, évolutions…) et de faciliter l’accès aux données sur la transmission (Répertoire Départemental à l’Installation, Déclaration d’Intention à la Cessation d’Activités, Notifications de vente, etc.). Une animation importante a permis d’assurer une concertation et un suivi multipartenarial de ce projet (comité technique, réunion bimestrielle avec les partenaires agricoles, commissions agricoles par communautés de communes). Résultats : des opérations d’échanges à l’amiable de parcelle (avec le soutien financier du Conseil départemental), l’installation d’éleveurs, un ralentissement de la perte d’exploitations et de surfaces agricoles et une prise de conscience des élus se traduisant dans des PLU intercommunaux protecteurs de surfaces agricoles.

Autres expériences réussies

Amiens Métropole ; Eau de Paris ; CASE ; Ville de La Rochelle ; AAC de Sainteny ; Eau du Bassin Rennais ; Lons-le-Saunier ; Strasbourg Eurométropole ; etc.

Pour en savoir plus

  • Consultez les autres dossiers dédiés aux thématiques du foncier et de l’installation-transmission
  • Visitez le site de Terre de liens
  • Consultez la fiche réalisée par le CEREMA sur le bail rural environnemental

Dossier réalisé en partenariat avec Terre de Liens


[i] Proposition d’acteurs à associer (non exhaustive) :

  • Acteurs publics : services de l’état, communes ou groupement de communes concernés, syndicats mixtes, Conseil départemental ou régional, établissement Public Foncier d’État (EPFE), Établissement Public Foncier Local (EPFL), Conservatoire du Littoral, PNR, Agences de l’Eau etc.

L’association d’une pluralité d’acteurs publics est essentielle pour le développement d’une stratégie territoriale efficace qui puisse mobiliser et articuler l’ensemble des dispositifs propre à chacune de ces organisations : droits de préemption, zonages et périmètres de protection, différents niveaux d’aides, etc. A titre d’exemple, sur ce dernier point, les agences de l’eau, l’État, les conseils régionaux et départementaux peuvent soutenir financièrement des projets d’acquisition foncière en fonction des projets et enjeux associés.

  • Acteurs du développement rural et agricole ; citoyens et consommateurs, etc. : GRAB et GAB, Chambre d’Agriculture, SAFER, Terre de Liens, CIVAM, groupes locaux de consommateurs etc.

Là aussi la mobilisation d’un ensemble d’acteurs divers dès l’amont du projet renforcera leurs conditions de réussite tout en favorisant leur inscription dans le territoire et son tissu économique social et agricole (groupes d’échanges de pratiques et de matériels, conseils et accompagnement, groupes de consommateurs locaux etc.).


Paroles d'acteurs

Emmanuel Hyest

Témoignage de Emmanuel Hyest

Président de la Fédération Nationale des Safer


  Témoignage d’Emmanuel Hyest Président de la Fédération Nationale des Safer Quel est le rôle et le fonctionnement des Safer ? L’installation d’exploitants agricoles, l’aménagement des structures des exploitations agricoles et forestières, la…

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