Those are foliage growth buds. Can you get a macro picture of one of those groups.

Nothing to worry about. However, the mature leaves shown in the photo do not look like navel orange leaves. From what I see they are very long and very narrow for a navel orange leaf. Kind of like a willow leaf orange.

I couldn't do a macro shot, but here is a close up. The leaves are more narrow than I expected from a naval orange, but it was clearly labeled. Hope it was not mislabeled.

Looks like you had a severe mite infection; that causes this type abnormal growth.

Ahh, an infestation. I will start treatment right away. Thank you all for your input

I think the mites are likely gone now; check with a 10X loupe and don't spray if you don't see mites. The damage has been done; it cannot be corrected now; but it will likely grow out of it to some extent.

Ok, thanks again. I imagine it will come out of it at some point. Should I cut the stems out that have the abnormal growth?

Totally agree with Johnmerr, that kind of spider mite damage happened to my mango tree couple years ago and killed it at the end. All those buds were trying to grow and the mites were eating them at the very early stage. They stunted the growth, need to treat for mites and follow up again later.

Any chance of herbicide used nearby? Could have been months ago.