JANUARY 2022

D E S I G N I N G 

F O O D 

FACILITIES

PLANNING
USDA is an equal opportunity provider, employer, and lender.
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CONTENTS

INTRODUCTION 1

MANAGING THE PROJECT 3

PRE-CONSTRUCTION REGULATIONS AND CONSIDERATIONS 4

OPTIMIZING ACCESSIBILITY 8

DETERMINING PROPERTY AVAILABILITY 10

DESIGN ELEMENTS OF EFFECTIVE LOCATIONS 10

DETERMINATION OF LOCATION CHECKLIST 14
CHAPTER ONE

INTRODUCTION
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his series, Designing Food Facilities, shares the basics of USDA’s free 

architectural services (Wholesale Market and Facility Design) and the 

design process for new or renovated farmers markets, food hubs, 

community kitchens, or mixed-use facilities.

This document explores the planning phase of the design process. It 

is intended to help organizations considering building a food-related 

facility develop a basic understanding of the process and essential 

considerations for designing a new or modified farmers market, food hub, 

community kitchen, or mixed-use facility.

Primary considerations in early planning include the substantial 

investment and the subsequent community and economic impact 

typical of new structures. Local community officials, qualified architects, 

designers, project leaders, residents, and other stakeholders will play 

a major role in the process. Together, they will carefully determine the 

financial feasibility, location, and design of a new facility.

Among the first steps in considering investment in a permanent farmers 

market structure or other food-related facility is assessing the needs of 

the consumers, vendors, and community. An existing market provides 

the advantage of understanding the enthusiasm for a new market, and 

the ability to discuss plans with consumers, vendors, market managers, 

landowners, and other stakeholders.

Decision-makers must weigh market requirements of farmers, consumers, 

the community, and other stakeholders against budgets, timeframes, 

spatial needs, and other planning details, all of which eventually impact 

design and construction. A higher investment will likely require a higher 

level of research, insight, and expertise. It is important to stay open to 

constructive stakeholder feedback, which will help to determine project 

scope and direction. Be thorough and inclusive of all stakeholders. 

Well-planned decisions optimize the use of time, funding, labor, and 

personnel, ultimately increasing the likelihood for success. In contrast, 

decisions with little foresight and inadequate stakeholder input may 

lead to costly missteps and an ineffective marketplace. The financial 

consequences and physical presence, positive or negative, will be felt 

within a community for years to come. 
CHAPTER TWO

MANAGING 

THE PROJECT
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uccess depends on a clear project vision and goal. Farmers markets 

and other food-related facilities are often community projects that 

rely on public funding. They include multiple stakeholders, often 

with different expectations (e.g. building structure, layout, etc.). A 

successful project requires clearly defined goals and shared commitment 

by stakeholders and project managers for an effective and efficient 

process. 

Planning, controlling project resources, and dedication to seeing the 

project through to completion may be the most important elements 

in the design and construction process. The project manager is 

responsible for these tasks and should have a background and proven 

skill in design and construction. A qualified and committed leader will 

identify and effectively evaluate critical elements, such as community 

needs, location, cost of construction, the number and type of vendors, 

funding sources, additional facility uses, and other contingencies. To 

set realistic expectations, the project manager must understand the 

relationship between time, scope, and cost constraints and their effect 

on project quality. The project manager needs to be able to interact with 

local government and possess knowledge of state and federal funding 

programs. A skilled project manager will see the big picture and be able 

to divide the project into structured segments with distinct tasks and 

measurable results.

A flow chart, along with other management tools, should be used to 

outline the project structure, maintain a work schedule and timeline, 

and provide the project with a common direction. The flow chart is an 

important visual tool which tracks project milestones, corresponding costs 

at various stages, and aids in recognizing potential areas of risk inherent 

in every project. Identifying and evaluating risks and conflicts early will 

provide help to minimize or alleviate project delays and budget overruns.

PRE-CONSTRUCTION REGULATIONS 

AND CONSIDERATIONS 

Early steps to planning a new permanent structure for a community 

include evaluating the potential location, design, and layout. The technical 

aspects of construction are governed by codes, regulations, ordinances, 

and laws of the local municipality. Site selection will generally be limited 

by factors such as topography, land availability, affordability, zoning, 

and accessibility. By understanding the pre-construction requirements 

outlined in this section, the project management can team make effective 

decisions throughout the planning and building processes. 

PROPERTY SURVEY

A property survey is a useful document which indicates property 

boundaries and helps to evaluate the planning and design of the 

proposed structure. If a previous property survey was not conducted 

or is not readily available for a specific location, one may be required. It 
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is the responsibility of the property owner or project manager to have 

one commissioned. When taking stock of a potential property, a survey 

should:

• Consider any existing structures at the site, along with the current 

and potential uses of adjacent property;

• Identify any easements for the property; and

• Identify existing utilities (water, sewer, electric, gas, 

and cable). 

Additional details will likely be required from historical records and the 

results of certifying surveys, construction layout surveys, registered land 

surveys, and judicial surveys. Detailed and precise measurements, along 

with simple observation, will help determine whether the site location is 

appropriate and whether a permanent structure is allowed.1

ENVIRONMENTAL STUDY

During site selection, site contamination, land layout, and other 

environmental constraints should be evaluated through a liability 

assessment that will highlight the limitations that a building site 

may present. Depending on the specific site location, previous site 

development, and current structure(s) on the site, a brownfield 

assessment may be required to establish any site contaminants that 

would require remediation prior to construction. Even if a project site 

was not previously developed, the project team must determine if the 

project will impact environmentally sensitive areas, such as wetlands 

or wildlife habitats. Environmental issues should be addressed at the 

onset of a project. The landowner and/or building owner is responsible 

for completing any required remediation, which can be costly. In certain 

circumstances, it may be cost prohibitive to build on environmentally 

sensitive sites. 

HEALTH AND SANITATION CODES

To meet sanitation standards for human waste disposal, the structure 

must be able to utilize an existing public sewer system or allow 

installation of a septic system. For many rural communities, the 

infrastructure of an existing public sewer system may not be available or 

feasible, leaving a septic system or drain field as the only viable options. 

A septic system, however, may be prohibitively expensive. It is therefore 

important to evaluate sanitation codes and allowable budgets early in the 

process to determine the best waste disposal option.2

FOOD CODE

The Food Code, published by the Food and Drug Administration (FDA), 

is a model code offered to states, territories, and all levels of government 

to effectively control microbiological, chemical, and physical hazards, 

1  American Bar Association, “Commercial Real Estate: Survey Requirements Vol. 2, No. 

7”

2 Ed Vitale, “Understanding Building Regulations: A Self-Help Guide for the Owner 

Builder,” http://www.motherearthnews.com/green-homes/understanding-building-regulations-zmaz76soztak (October, 1976)

Site Contamination

A site that may have been used 

for industrial or commercial 

purposes historically, such as 

a gas station or dry-cleaning 

facility, that have left pollutants 

and contaminants in the ground 

that may restrict future use of 

the land.

Liability Assessment

An evaluation of the ability to 

construct on any given site may 

be restricted based on the zoning 

code or other restrictions.

Brownfield Assessment

Also known as Targeted 

Brownfield Assessment, is 

conducted to evaluate possible 

contamination of a site according 

to standards set forth by the 

Environmental Protection 

Agency (EPA). See https://www.

epa.gov/brownfields/targetedbrownfields-assessments-tba.
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that may cause foodborne illness, in food-related facilities.3 Farmers 

market or other food-related structures should be designed to avoid 

cross-contamination of raw and processed food products (e.g. combining 

produce and meat processing in one facility). 

BUILDING CODES

Building codes are implemented to standardize construction to 

protect public health and safety. Building codes address structural and 

mechanical integrity, electrical, plumbing, energy efficiency, parking, 

drainage, and more. Standards in the United States are based on the 

International Building Code (IBC), a model building code that almost 

all states follow. IBC model codes have no legal authority unless a 

municipality or other local authority chooses to adopt any portion of the 

model. Once adopted by a jurisdiction, the model code becomes law. 

Individual municipalities may adopt various sections of the IBC, adding, 

deleting, or revising any portion of the code. It is crucial to research 

and comply with any laws and regulations that may apply to a project’s 

jurisdiction.4

ZONING ORDINANCES

Zoning ordinances allow local governments to designate and permit 

the use of land, based on mapped zones. They generally divide a town, 

city, village, or county into residential, commercial, agricultural, and 

industrial districts.5 Zoning may also prescribe building dimensions and 

require certain building features (e.g. adequate drainage systems), and 

site features (e.g. number and location of parking and loading areas and 

sign usage). Many jurisdictions allow for an appeal process to request 

an exception to the existing zoning classification. If zoning becomes an 

impediment, the appeal process may grant a variance or adjustment.

3 Food and Drug Administration, Food Code, https://www.fda.gov/food/retail-food-

-protection/fda-food-code

4 International Code Council, “Overview of the IBC (International Building Code),” https://www.iccsafe.org/codes-tech-support/codes/2015-i-codes/ibc/ (2015)

5 Ingolf Vogler, “What is Zoning” https://people.uwec.edu/ivogeler/w270/what_is_zoning.htm, University of Wisconsin-Eau Clair.
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Good buildings make and are made by 

their settings, and they are appropriately 

different in different locations. Climate, 

culture, topography and materials have 

helped create regional architectural 

languages that seem curiously right for 

their locations and for all times. "

"

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6 “2010 AD 100: Jaquelin T. Robertson,” Architectural Digest, 

http://www.architecturaldigest.com/story/jaquelin-robertson-profile

(December 31, 2009).

— Jaquelin T. Robertson 

American Architect

Urban Designer
CHAPTER THREE

OPTIMIZING 

ACCESSIBILITY
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ocation is key to success. Primary factors in choosing location are 

the cost of operation, convenience to operators and customers, and 

the potential for revenue. The available budget will likely determine 

location options. The facility should have easy and affordable access 

to energy and be readily accepted by the community. Transportation to 

and from the facility should be easy for farmers, vendors, customers, 

employees, and delivery drivers (particularly relevant to food hubs and 

community kitchens). Information derived from feasibility studies and 

market analysis such as transportation and demographics will help in 

making crucial decisions. Here are a few specific considerations based on 

the type of facility: 

Farmers Markets: 

• Optimize customer access. The volume of customers will generally 

determine market success. Volume must be balanced with producer 

accessibility and the cost of operation. 

• Ensure safety. The location should provide a sense of security for 

customers, farmers, and others. 

• Research competition. A local grocery store or nearby farmers 

market, for example, might compete for potential customers. 

Product differentiation, a variety of services, and an easily 

accessible market structure may help a market minimize the impact 

of competition.

• Build community. A farmers market facility will become a permanent 

part of the community. A positive image and relaxed atmosphere 

will welcome patrons and contribute to the overall success of the 

business. 

Mixed-Use Facilities:

• Check zoning requirements. Choosing a location that allows 

for additional businesses and services (i.e. other retail; leasable 

space, such as residences and community space, park space, etc.) 

will broaden the appeal of the facility, increasing its competitive 

position. 

Food Hubs and Community Kitchens: 

• Food hubs and community kitchens focus on aggregation, 

distribution, and value-added processing, rather than directly 

interacting with customers, therefore, choosing a location based on 

direct consumer access is less important than producer access. 

• Explore rules and regulations. Prior to investing in the structure, 

tax and local regulations must be explored to ensure economic 

functionality and security in a chosen location. 

Farmers Markets

Farmers markets feature two or 

more farm vendors selling 

agricultural products directly 

to customers at a common, 

recurrent physical location. 

Farmers markets may be in 

an open space (or covered 

by a pavilion-type structure, 

for example) or fully enclosed 

within a fixed building 

structure.

Food Hub

Businesses or organizations 

that actively manage the 

aggregation, distribution, and 

marketing of source-identified 

food products to multiple 

buyers from multiple producers 

(primarily local and regional) to 

strengthen the ability of these 

producers to satisfy local and 

regional wholesale, retail, and 

institutional demand.

Community Kitchen

A shared-use commercial 

kitchen that allows farmers, 

producers of specialty food 

items, caterers, street-cart 

vendors, and other emerging 

businesses to prepare and 

process food for commercial 

sale in a licensed and certified 

kitchen.

Mixed-Use Facility

A facility that might include 

space and portions of the 

structure for a mixture of 

uses, such as a farmers 

market; a community kitchen; 

entertainment; residences (i.e. 

apartments); group meetings 

for education or community 

events; manufacturing, such 

value-added processing, 

packaging; or any other use 

that might be relevant.
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DETERMINING PROPERTY AVAILABILITY

Ensuring that land is available, affordable, accessible, open to acquisition, 

and uncompromised by zoning regulations is vital during the early 

planning stages of a project. Project land may be donated through a 

municipality, county, or state government; leased; or purchased directly 

from a landowner. Stakeholders, local officials, project or market 

manager(s), and others important to the process, play a significant role in 

weighing the pros and cons of acquisition, finance, and use. 

Not all property characteristics may be easily controlled or modified. 

Decisions relevant to access and use should consider: 1) slopes, 

floodplains, and surface drainage; 2) sounds/odors, unsightly views, 

unusual noises; 3) heavy traffic or other issues that may create safety 

concerns; and 4) existing trees and other vegetation which may impede 

or complement the new structure.7

DESIGN ELEMENTS OF EFFECTIVE LOCATIONS

Farmers markets and related food facilities, such as food hubs, 

commercial kitchens, and mixed-use facilities, differ in purpose, yet 

have similar site characteristics that determine success. When planning 

the layout and location, the project team should consider the following 

elements:

Parking: Parking is an important spatial component for all stakeholders. 

The number of parking spaces must be adequate given the size of the 

facility, the number of vendors and customers, and purpose (retail/

manufacturing/processing/alternate uses). Parking dimensions will be 

determined by architectural standards, local codes, and requirements. 

Parking layout must comply with the Americans with Disabilities Act (ADA 

Accessibility Guidelines), which requires a percentage of total spaces to 

be appropriately modified and made available for people with disabilities.8

Walkways: Pedestrians at farmers markets should have safe, wellmaintained, and lit walkways, with easy access to products. A food hub 

and community kitchen will require adequate walkways, dock space, and 

other common areas so that employees and others can maneuver safely 

within and around the facility. ADA Guidelines will apply as appropriate. 

7 “Starting and Managing: Tips for Choosing Your Business Location,” U.S. Small Business Administration, https://www.sba.gov/starting-business/choose-your-business-location-equipment/tips-choosing-your-business-location.

8 “Accessible Parking, ADA National Network: Information, Guidance and Training on 

the Americans with Disabilities Act,” American with Disabilities Act (ADA), https://adata.

org/factsheet/parking.
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Public Transportation: An ideal location for a farmers market or food 

related facility will be accessible to the local population through public 

transit, personal vehicle, and by foot. Locating a market near a public 

transportation hub (e.g. local bus, subway, or other light rail) impacts 

market success. A well-maintained public transportation network and 

frequent route schedule will improve access for customers, particularly 

in areas with low-income residents and seniors. Maintaining access to a 

broad customer base will determine market success and sustainability.

Co-locating/Proximity: Just as a market can be made accessible through 

public transportation by bringing consumers to the market, the public 

is made accessible to the market through co-location by bringing the 

market to a place where consumers regularly visit. Farmers markets and 

Community Supported Agriculture (CSA) ventures may also be co-located 

at office buildings or college and university campuses, where there is 

a critical mass of customers. The operation of both conventional and 

mobile farmers markets in low-income neighborhoods makes it easier for 

local residents to access a variety of fresh produce. 

For example, markets are sometimes located near hospitals and 

neighborhood centers where health screenings and other health-related 

services may also be available. Some health care providers approve and 

sponsor these programs. Many hospitals and health care professionals 

have implemented programs which aim to improve nutrition through 

access to fresh farm products. The farmers market uses nutrition as 

preventative medicine in the fight against diabetes, heart disease, 

obesity, and other diet-related illnesses. Markets may also be a venue 

for dispersing health and nutritional information to patients, parents and 

children, and others in the community.9

Landscaping: Trees, shrubbery, and other plants offer aesthetic and 

practical benefits when incorporated into the design. They are pleasing 

to the eye, create a pleasant atmosphere, and provide natural shade to 

shoppers and vendors. Resting on a bench beneath a shady tree delivers 

a respite and may encourage a longer stay at the market. Vendors will 

have the same benefits, getting relief and comfort from what may be a 

hot location. 

Service Access: Emphasis on vehicular service access in the overall design 

will ease the maneuverability for small to mid-sized farm trucks and 

customer vehicles at a farmers market. 

Food hubs and community kitchens normally require a considerable 

amount of docking space to handle incoming raw products and outgoing 

processed products. It is particularly necessary for larger, high-volume 

facilities. Depending on the type and volume of the facility, trucks may 

9 “Kaiser Permanente Farmers Markets Grow to More Than 50,” Kaiser Permanente, 

https://share.kaiserpermanente.org/article/kaiser-permanente-farmers-markets-grow-to-

-more-than-50/ (August 9, 2012).
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vary in size from Class 1, weighing 6,000 lbs. or less (i.e. pick-up trucks 

and cargo vans), to Class 6, weighing up to 26,000 lbs. (i.e. rack trucks), 

to tractor trailers, weighing up to 80,000 lbs.10 Each vehicle class has 

its own spatial standards that account for turning radius, space width/

length, driving surface weight compacity, etc. The design should account 

for all vehicle classes the facility will accept to allow each vehicle to move 

in, out, and around a farmers market, food hub, community kitchen, and 

other food processing and service facilities. 

Wayfinding/Signage: Wayfinding provides visual cues such as maps, 

signage, landmarks, directions, and road symbols to help people get 

oriented and find directions. Wayfinding is a crucial element on a small 

scale within a building, as well as within a neighborhood context.

Market signs include: 1) Directional signs or road signs that show the 

way to a market (e.g. “Exit to XYZ Farmers Market”); 2) Identification 

signs or market labeling, identifying the specific market locations (e.g. 

“XYZ Farmers Market,” at the specific market location); 3) Informational 

signs, indicating specific market hours, types of products, etc. (e.g. “XYZ 

Farmers Market, hours: 8:00 am to 1:00 pm, every Saturday”); and 4) 

Warning signs indicating safety procedures, such as fire escape routes, no 

smoking areas, and other regulations.11

A local farmers market may collaborate with the local government by 

using road signs and other public signage to promote the availability of 

fresh food and farm products. The Maryland Department of Agriculture 

and the State Highway Administration, for example, have approved 

farmers market highway sign design through its “Farmers Market Signing 

Program.” The State has also developed “guidelines for the application, 

fabrication, installation, and maintenance of Farmers Market Highway 

signs.”12

Traffic Flow: High traffic movement and convenience will naturally 

increase visibility and accessibility for residents, tourists, and other 

consumers. Market managers should evaluate the ease of accessing the 

facility throughout the market day (i.e. during peak rush hour). Evaluations 

may show whether congestion is deterring customers from visiting the 

market. 

Mixed-use buildings require additional planning for facility design, 

layout, and traffic flow. Other building uses may include residences, 

manufacturing, restaurants, and other retail. Ease of access in and around 

the facility is vital to residents and businesspeople alike. A successful 

facility will be one that does not compromise the convenience of one 

crucial element to the detriment of any other.

10 “Types of Vehicles by Weight Class,” Federal Highway Administration (FHWA), https://www.afdc.energy.gov/data/10381.

11 “Introduction to Wayfinding and Signage Design,” designworkplan, http://designworkplan.com/wayfinding/introduction.htm.

12 “Farmers’ Market Signing Program,” Maryland State Highway Administration, 

http://mda.maryland.gov/maryland_products/Documents/Maryland%20Farmers%20

Market%20Highway%20Sign%20Program.pdf (April 2010).
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Electricity: Electrical needs for farmers markets, food hubs, or community 

kitchens include lighting and refrigerated storage, heating and cooling, 

and more. New facilities often strive to become energy efficient early in 

the design and planning stage. Renewable resources (e.g. solar, wind, etc.) 

may minimize heating, cooling, and other operational costs. Incorporating 

renewables may serve as a learning tool for optimizing energy usage 

within the community. 

Alternative Use: Optimizing and increasing the overall use of a structure 

will help to justify construction costs and increase its revenue and overall 

success, financially and socially. Adding common or private space into the 

plan will promote the use of the facility for meetings, social gatherings, 

private parties (weddings, retirements, etc.), and other community 

events during non-business hours. Common mixed uses may include 

residential space, entertainment venues, restaurants, additional retail, and 

manufacturing/processing. All will contribute to the revenue necessary 

to operate and increase the likelihood of a sustainable and successful 

structure.
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CHAPTER FOUR

DETERMINATION 

OF LOCATION 

CHECKLIST
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T

his checklist can help community planners evaluate possible 

locations for farmers markets, food hubs, or shared commercial 

kitchens. To learn more about design planning, visit https://www.ams.

usda.gov/services/local-regional/facility-design.

When determining the location for a new food facility, consider the 

following factors: 

 Property size/grade/developable area (site survey)

 Required physical improvements before construction (site survey, 

contact local jurisdiction)

 Encroachments from neighboring properties (site survey, visual 

inspection)

 Availability of public utilities (contact local jurisdiction)

 Power lines or transmission lines crossing property (site survey, 

contact utility, visual inspection)

 Existing easements or covenants (site survey, deed information)

 Liability insurance for the market and property owner

 Hazardous materials requiring clean-up (remediation)

 Dedicated right-of-way (site survey, deed information)

 Zoning ordinances/land use of the property and surrounding 

properties (site survey, deed information, contact local jurisdiction)

 Any conditions placed on the property by the owner (also see deed 

information)

 Requirement for septic system (contact local jurisdiction)

 Special environmental/wildlife regulations or considerations 

(environmental assessment)

 Highest and best use of the property

 Master growth plan for the area (contact local jurisdiction)

 Proximity to potential customers/vendors

 Surface parking for vendors and customers

 Traffic flow and control

 Security provisions (security staff, road closures, barricades, signage, 

etc.)

 Solid waste removal (septic, well, or public sewer/water)

 Hours of operation
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 Shared use of facilities, if applicable

 Signage and marketing (road signs, pedestrian signage, directional 

markings, etc.)

 Temporary pedestrian flow barriers

 Local demand for leased space (i.e. mixed-use facility)

 Local attitudes for a permanent structure (public survey)

 Registered historical buildings involved (contact local jurisdiction, 

building registry)