Umstead Act


In general, the Umstead Act (the “Act”) prohibits North Carolina government agencies from competing with the private commercial activities of North Carolina citizens. NC State University and its employees must comply with the Act. Violations may be punished as a criminal misdemeanor. G.S. 66-58(a).

The Act specifically prohibits North Carolina government agencies from:

  1. directly or indirectly selling goods in competition with N.C. citizens;
  2. rendering services to the public that are ordinarily provided by private businesses;
  3. leasing space in a state owned or operated building for purposes of selling goods or rendering services in competition with private business;
  4. contracting with anyone to sell goods or render services in competition with private business.

Exceptions Involving University Activities

Five of the exceptions specifically permit the university to conduct certain commercial activities including:

  1. The first statutory exception (G.S. 66-58(b)(8)) allows state universities to sell several things and conduct certain activities:
    1. utilities and other services operated prior to January 1, 2005;
    2. items that are incident to educational research or the operation of instructional departments;
    3. food, books, and minor merchandise to employees, students, and their families;
    4. food and merchandise to guests invited to the university for meetings or conventions;
    5. anything incident to operation of the coliseum;
    6. student health services;
    7. activities that serve students and employees and their immediate families or guests;
    8. activities that further the mission of the university;
    9. activities that provide university related services or market university related merchandise to alumni of the university and their immediate families;
    10. activities that enable the community or people of the state to utilize the university’s facilities, equipment or expertise; and,
    11. operation by the university of an inn or hotel and dining and other facilities connected to an inn or hotel.
  2. A second exception allows the sale of learned journals, works of art, books or publications of the university. G.S. 66-58(c)(2).
  3. A third exception allows state universities to operate campus stores where profits are used for student scholarships. Campus stores may sell educational supplies, gift items, and personal use items. However, a campus store may only sell to students and their families, employees and their families, and individuals who are on campus for a purpose other than just to buy goods from the university store. Only educational supplies, gift items, and personal use items may be sold. G.S. 66-58(c)(3). In 1989, the UNC Chapel Hill campus store stopped selling crock-pots and other small appliances after local merchants complained. However, in 1994, although local store owners complained, the District Attorney refused to prosecute UNC Chapel Hill. for selling such items as children’s books. The statute is unclear concerning the types of items that may be sold, other than educational items.
  4. Another exception allows the sale of products from experimental stations or test farms. G.S. 66-58(c)(1).
  5. There is an exception for Centennial Campus operations. G.S. 66-58(b)(8)(g).

There is another exception for sale by NC State owned facilities of dairy products so long as the profits are used to support the Department of Food Science and the College of Agriculture and Life SciencesG.S. 66-58(c)(1b).


  1. The General Assembly created the UNC Umstead Review Panel to review and determine whether or not a proposed activity violates the Umstead Act. The University may rely on the determination made by the panel.  Therefore, if you want to start a new activity, please discuss with the Office of General Counsel to determine if a presentation to the Review Panel is appropriate.  You may read more about the Umstead Act and the Review Panel.
  2. The simplest defense is to establish a clear connection between the goods sold or the service rendered and the University’s educational purpose. In 1986, the NC Attorney General stated that activities which are incidental to the legitimate function of a state agency are not violations of the Umstead Act. (Attorney General’s Opinion, March 4, 1986, 55 NCAG 101). The function of the university is to educate, so the law permits any sale of goods or services that are a function of educational operations.
  3. A federal court in North Carolina has ruled that the Umstead Act creates an exclusive remedy. This means that although an agency or employee may be found criminally guilty of a misdemeanor, a private citizen cannot sue in civil court. (See Bd. Of Governors v. Helpingstine, 714 F. Supp. 167 (M.D.N.C. 1989)).
  4. For employees of state institutions, the statute applies only when they act in their capacity as employees. G.S. 66-58(a).

Important Questions

  1. Is the activity a direct or indirect sale of goods, wares or merchandise?
  2. Does the activity offer a service that is normally performed by private businesses?
  3. Is the activity directly related to the university’s educational function?
  4. Would the activity fall under any other exception, such as a product of an experimental station or test farm, a learned journal or other exception?

**If the answer to 1 or 2 is “yes,” then proceed to answer 3 and 4. If neither 3 nor 4 is “yes,” then the activity is likely prohibited by the Umstead Act.

Consult with the NC State Office of General Counsel if there is any question about the applicability of the Umstead Act.

Additional Issues

An activity that is acceptable under the Umstead Act may still be inappropriate or raise other legal issues. For example, revenue from an activity that is not substantially related to the educational mission, as determined by the IRS, may be subject to Unrelated Business Income Tax (UBIT).