land use plan of Camden County, 1980-1990

[From the U.S. Government Printing Office, www.gpo.gov]

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CHARLESTON I SC 29405-2413

COASTAL ZONE I A @OE INT POINTINw
INFORMATION CENTER

CAMDEN COU-NET
HD land use plan 1980-1990
211
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1981
c.2 October 5, 1981

T. F. "Buck" LEARY, Chairman
PAUL DeBERRY, Vice Chairman
KENNETH WHITEHURST
SAMUEL K. SHAW
J. C. ROUNTREE
CAMDEN COUNTY, NORTH CAROLINA JACK LEARY, Clerk

OFFICE OF THE BOARD OF COMMISSIONERS

Camden, N.C. 27921

October 5, 1981

Mr. J. Parker Chesson, Jr.
Chairman
Coastal Resources Commission
P.O. Box 27687
Raleigh, NC 27611

Dear Mr. Chesson:

Pursuant to the public hearing held on October 5, 1981 as advertised in the
Daily Advance newspaper on September 1, 1981, this plan was adopted by the
Commissioners of the County of Camden. We hereby submit it to the Coastal
Resources Commission for your certification review.

Sincerely,

T. F. Leary
Chairman

RT/jr

THE LAND USE PLAN OF CAMDEN COUNTY: 1980-1990

Camden County, North Carolina

BOARD OF COMMISSIONERS, CAMDEN COUNTY
T. F. Leary, Chairman
Paul DeBerry, Vice Chairman,, Kenneth INhitehurst, Samuel K. Shaw, J. C. Rountree
Jack Leary, Clerk

PREPARED BY: THE CAMDEN DEVELOPMENT ADVISORY COMMITTEE
T. F. Leary, Ch airman
S. K. Shaw, A.K. Clow, Vivian Jones, Willis Ferebee, Billy L. Revelle

14ITH TECHNICAL ASSISTANCE FROM:
Planning and Design Associates, P.A.
3515 Glenwood Ave.
Raleigh, NC 27612 (919) 781-9004

Terry W. Alford, President

Consultants: Rex H. Todd, MRP, Project Manager; Arden Holdredge, AICP;
Keith Wilder, B. Arch.; Dick George, B.S.; Nancy Lane, MA;
Terry Alford, MRP, AIA; David Parham, MA, MRP; Cynthia Keller
Dave Roesler, MLA; Walter Sawyer; Janet Roberts; Gina Moore

The preparation of this plan was financed in part through a grant provided by the
North Carolina Coastal Management Program, through funds provided by the Coastal
Zone Management Act of 1972, as amended, which is administered by the Office of
Coastal Zone Management, National Oceanic and Atmospheric Administration. Camden
County contributed cash and in-kind services.

A C K N 0 W L E D G E M E N T S

The Camden County Board of Commissioners wishes to express their appreciati-on
to all those who contributed their time and thoughtful ideas on this Land
Use Plan.

We wish to thank all those citizens of Camden County who responded to the
questionnaire about land-use issues; the members of the Land Use Planning
course at the Department of City and Regional Planning at Chapel Hill., namely:
John Becker, Pat Davis, Lewis Lobdell , Joanna Mack, Kim Marlow, Bill McElyea,
Forrest Sadler, Julie Shambaugh, Mike Slavney, Maria Stanco, Joyce Tuharsky;
and the members of the Camden County Development Advisory Committee listed on the
previous page.

Because of their contributions, this Land Use Plan update contains better
information and is more representative than we could have otherwise acheived.

LAND USE PLAN UPDATE OF C41DEN COUNTY

Table of Contents

Section Page
I. Introduction 1

II. Policy Discussion, Selection, and Implementation Strategie s 6
A. Overview 6

B. Resource Protection 7

C. Resource Production 28
D. Economic and Community Development 36
E. Continuing Public Participation 47
F. Other Specified Issues 50
G. Consistency with Land Use Ordinances & CAMA Improvement 52
Plans and Budgets
H. Related Plans, Policies, and Regulations 52
1. Intergovernmental Coordination and Implementation 52
J. Public Participation 52

III. Land Classification Map and Policy Relationships 53

IV. Information Base for Policy Discussion 57
A. Establishment of Information Base 58
B. Present Conditions and Economy 59
C. Existing Land Use Analysis 67
D. Current Plans, Policies, and Regulations 94
E. Constraints: Land Suita bility 105
F. Constraints: Capacity of Community Facilities 116
G. Estimated Demand 120

V. Appendix
1. Areas of Environmental Concern (Regulations) 124
2. Citizen Survey Questionnaire 137
3. OCM Checklist for Land Use Plans 142
4. Synopsis 146

LAND USE PLAN UPDATE OF CAMDEN COUNTY

List of Exhibits

Exhibit Page

Camden County Location Map 2
Fragile Areas Map 8
Hazard Areas Map 15
Map of Dismal Swamp Peat Deposits 20
Land Classification Map 54
Commuting Pattern 1970 Camden County 63
Existing Land Use, Composite Map 68
Exsiting Land Use, Quadrant Maps 69-81
Archaeological Sites Map 84
Publiclv Owned Forests and Park Map 86
Incompatible Land Uses and Potential Problems from Development 91
General Soils Map 108
Interpretative Tables for General Soils Map 109
Camden County Sand Deposits 114
Highway 17 North (under construction) 119

I INTRODUCTION:

A. Why Plan for Camden County's Future?

As recognized in its 1976 Land Use Plan under the Coastal Area Management
Act (CAMA), Camden County's population, its sensitive environmental areas,
and agricultural economy provide important reasons for planning deliberately
for the future. The 1981 update extends that data base by including recent
County policies and programs and new information developed under the direction
of the Camden Development Advisory Committee. The new information includes
a citizen survey and field observations of land use, housing condition, and
Areas of Environmental Concern (AEC's).

First, Camden County is the home of 5,829 persons, 67.5'/"o of whom are white
and 32.5% non-white. Since 1970, Camden grew only 6.9% (376 persons),
compared to the state's rate of 15.5'/10. Projections show that the County
can expect a similar growth rate between 1980 and 1985 (6.3%), with a 9.8'/Z
rate between 1980 and 1990. The fact that the County will grow 14% faster
than the state during that period distorts the fact that only 571 additional
persons will reside in Camden County in 1990 than today.

Second, Camden County has a large amount of its official territory covered
by public waters and shorelines that are designated as Areas of Environmental
Concern under the Coastal Area Management Act. Additionally, vast areas of
wooded swamp, while not officially AEC's, serve valuable nutrient collection
and wild-life habitat functions. Additionally, the Dismal Swamp State Park
covers thousands of acres, where the natural environment is particularly
protected. Demand for recreational and second homes continues to place
considerable pressure for development in environmentally sensitive areas.
In addition to resources that need protection, Camden County has vast
acres of good farmland and forested areas suitable for commercial production.
A large peat concentration along the northeastern boundary has potential
for careful resource management.

Third, economic and community development issues persist in the County.
Water quality is one such issue. Softeners and other purifiers are applied
to individual wells, except in the one-third of the County served by the
non-profit South Mills Water Association. Therefore, expressly choosing
a slow growth policy, the County is justifiably interested in being selective
among federal and state programs which stimulate development. It is equally
cautious about courtina industries that extract minerals and drain swamps
to deplete the water table in the northern part of the County and about
undertaking any other actions that could stimulate development. These times
of high inflation, increasing costs in gasoline, and rising unemployment may
reverse commuter trends, however, and cause pressures for concentrated commercial
and residential development patterns in the County.

CAMDEN. COUNTY
North Carolina

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Thus, the County's population, rural nature, environmentally sensitive areas,
and community and economic development intentions provide ample incentive
for the County to prepare to face the uncertainty of the 1980's. It is to
this end that the County has prepared this update of its Land Use Plan.

B. What is the Camden County Land Use Plan?

This document, then, is the pivotal statement of policy for use by local,
state, and federal officials in decisions regarding Camden County's development
over the next 10 years. Additionally, it is an important piece in the
development efforts of the 'County and an important element in the state's
plan for the rational and coordinated management of coastal resources.

The Coastal Area Manaaement Act establishes a base for protection of areas
of statewide concern within the coastal area. In Camden County estuarine
waters and shorelines and public trust waters have been designated for such
protection and are addressed specifically in Section II below. The Act also,
through its guidelines for land use planning (15 NCAC 7B), sets forth
important principles of land use planning which have been emphasized in
this document:
1. This plan has environmental protection as a priority in its
own right, while, at the same time, it advocates appropriate economic
and community development.
2. This plan is based upon real citizen participation.in the
planning process through the County Board of Commissioners,
citizen survey, and public meetings.
3. This plan has a strong action orientation. Policies are stated
as desired situations toward which the County Board is willing
to work.
4. This plan is a sound basis for continuation of earlier work in
Camden to improve the community for those who liVe and visit
there.
5. This plan is designed for continuous improvement as new information
becomes available. It is to he updated at least once every five
years and more frequently if required by the County Commissioners.

Based upon these principles, then, Section II goes directly to the heart of
the Plan--policy discussion. Here, a brief description of issues, alternative
policies, chosen policies, and implementation statements are presented.

Section III features the Land Classification Map which translates these
policies into future desired land use patterns and discusses the relationships
between the Land Classification Map and the policy statements in Section II.

Section IV presents in more detail the information base upon which the
policies and Land Classification Map have been developed. The elements of
this section are outlined in the Table of Contents.

Finally, Section V is an Appendix which presents miscellaneous exhibits
regarding submission and adoption of the Plan, including the synopsis.

Before getting into the policy discussion, it is important to review the uses
of this document. After all is said and planned, it is only the use of
this document which will make it a reality in Camden County.

C. What Are the Uses of the Land Use-Plan?

Land use plans which are prepared by local governments in the coastal area
are distributed widely and have many uses. Those* reviewing and using the plans
are local governments, regional councils of government, state and federal
permitting agencies and public and private funding and development groups.

The discussion of policies the land classification map, and the relationship
of the two serve as the basic tools for coordinating policies, standards,
regulations and other government activities at the local, state and federal
levels. The coordination is described by three applications:

a. The policy discussion and the Land Classification Map encourage
coordination and consistency between local land use policies and
the state and federal governments. The local land use plans are
the principal policy guides for governmental decisions and
activities which affect land uses in the coastal area.

b. The local land use plans provide a framework for budgeting, planning
and for the provision and expansion of community facilities
such as water and sewer systems, schools and roads.

c. The local land use plans will aid in better'coordination of
regulatory policies and decisions by describing the local land
use policies and designating specific areas for certain types of
activities.

Local Governmental Uses: Counties and municipalities should use the
local land use plans in their day to day decision making and in planning
for the future. The land use plans should provide guidance in local
policy decisions relating to overall community development. The
plans also provide the basis for development regulations and capital
facility planning and budgeting. By identifying how the community
prefers to grow, land use plans help to assure the best use of tax
dollars'as public utilities can be extended to areas designated for
development necessitating.public services.

Regional Uses: The regional councils of government or planning and
development commissions use the local land use plans as the basis for
their regional plans and in-their function as regional clearinghouses
(A-95) for state and federal funding programs. The local plans indicate
to these regional agencies what types of development the local community
feels are important and where the development should take place.

State and Federal Government Uses: Local land use plans are used
as the major criteria in granting or denial of pe .rmits for various
developments within the coastal area. State and federal agencies must
be sure that their decisions consider the policies and land classification
systems which are described by the local governments in their plans.
The Coastal Area Management Act stipulates that no development permit
may be issued if the development is inconsistent with the local
land use plans. Similarly, decisions relating to the use of federal
,or state funds within coastal counties and towns and projects being
undertaken by state and federal agencies themselves must also be
consistent with the local plans. State agencies also use the plans
in their A-95 review. Thus, it is vitally important that local
governments take the opportunity to be as definitive as possible in
developing their policy statements and land classification system
to minimize i-nterpretive decisions on the part of state and federal
review, permit and funding agencies.

II. POLICY DISCUSSION AND STATEMENTS.

A. Overview.

"Policy" is most simpl.y defined as an expressed set of adopted statements
which are to be. used to guide future decisions. -Taken together, and adjusting
them for interrelationships policies constitute a broad development direction
for the future and may be embodied in the heart of the plan.

The following policies, then, represent desired states or "goals" toward
which the Camden County Board of Commissioners and the citizens of the County
are willing to work. These-particular policies were chosen after careful
analysis of published data, responses to the citizen survey, analysis of current
plans, policies, and programs, and work sessions of the Development Advisory
Committee Commissioners, and preferred policies were selected.

Their work is presented below in the five major categories of.policy discussion
outlined by the Office of Coastal Management: resource protection, resource
production , economic and community development, citizen participation, and
special issues.

For each issue, this section presents:

a definition of the scope and summary of.the imp ortance of the
issue in the locality (more detailed information may be found
in Section IV).

the alternative policies that have been considered for the issue.

a description of how the local policy will be implemented.

With this understanding, we turn to the first category of issues, Resource
Protection.

B Resource Protection

In accordance with the CAMA guidelines for land use 'planning, the following
issues are identified for policv discussion within the resource protection
category for Camden County:

Areas of Environmental Concern

Constraints to Development

Specific Local Resource Development Issues

Other Hazardous or Fragile Land Areas

Hurricane and Flood Evacuation Needs and Plans

1. Areas of Environmental Concern.

The designation and regulation of critical resource areas is one of the major
purposes of the Coastal Area Management Act. The 1974 Legislature found that
"the coastal area, and in particular the estuaries, are among the most
biologically productive regions of this state and of the nation," and in
recent ye@rs the area "has been subjected to increasing pressures which are
the result of the often conflicting needs of the society expanding in industrial
development, in population, and in the recreational aspirations of its citizens".
The Act further states that, "unless these pressures are controlled by co-
ordinated management, the very features of the coast which make it economically,
aesthetically, and ecologically rich will be destroyed."

Through a subsequent nomination process, Interim Areas of Environmental
Concern (IAEC's) were reviewed by the Coastal Resources Commission and 13
categories of AEC's were proposed for final designation. These are explained
in detail in 15 NCAC 7H.

The following map shows the four categories of AEC's in Camden County:

Coastal Wetlands
Estuarine Waters
Estuarine Shorelines
Public Trust Waters

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a. Coastal Wetlands

These areas are defined under 15 NCAC 7H as any salt marsh or other marsh
subject to regular or occasional flooding by tides, including wind tides.
Coastal wetlands contain some, but not necessarily all of the following marsh
plant species listed in the Appendix, page 125.

As shown on the above Fragile Areas Map, page 8, coastal wetlands are
found on much of the shoreline of the Pasquotank and North Rivers, especially
along the tributaries adjacent to Raymond Creek.

These marshes are significant because they support the unique productivity of
the estuarine system. Without the marshes, the high productivity levels
and complex food chains typically found in the estuaries could not be maintained.
Particularly, this would affect fishing, hunting, and shellfishing, and the
estuarine shoreline's first line of defense against erosion would be lost.

Primarily because of their remote location and of the effectiveness of state
@nd federal regulations, there is no apparent imminent threat to these marshes
in the County. Thus, the major issues facing the Commissioners relate to the
need to protect this valuable resource in the future.

b. Estuarine Waters.

As shown on the Fragile Areas Ma.p estuarine waters consist of all waters
of the Pasquotank River Basin downstream of the Highway 158 Bridge between
Elizabeth City and Camden County; the Albemarle. Sound and all waters of the
North River south of the dividing line between coastal fishing waters and
inland fishing waters.

Estuarine waters are defined in G.S. 11 3A-113 (b) (2) as "all the water of
the Atlantic ocean within the boundary of North Carolina and all the waters
of the bays, sounds, rivers, and tributaries thereto seaward of the dividing
line between coastal fishing waters and inland fishing waters, as set forth
in an agreement adopted by the Wildlife Resources Commission and the Department
of Natural Resources and Community Development filed with the Secretary of
State, entitled 'Boundary Lines, North Carolina Commercial Fishing -- Inland
Fishing Waters,' revised to March 1, 1965,."

Estuarine waters are the dominant component and bonding element of the entire
estuarine system, integrating aquatic influences from both the land and the
sea. Estuaries are among the most productive natural environments of North
Carolina. They support the valuable commercial and sports fisheries of the
coastal area which are comprised of estuarine dependent species such as
menhaden, flounder, shrimp, crabs, and oysters. These species must spend
all or some part of their life cycle within the estuarine waters to mature
and reproduce.. Of the 10 1@eading species in the commercial catch, all but
one are dependent on the estuary.

This high productivity associ-ated with the estuary results from its unique
circulation patterns caused by tidal* energy, fresh water flow, and shallow
depth; nutrient trapping mechanis'ms; and protection to the many organisms.
The circulation of estuarine waters-transports nutrients, propels plankton,
spreads seed stages of fish and shellfish, flushes wastes from animal and
plant.life, cleanses the system of pollutants, controls salinity, shifts
sediments, and mixes the water to create a multitude of habitats. Some important
features of the estuary include mud and sand flats, eel grass beds, salt marshes,
submerged vegetation flats, clam and oyster beds, and important nursery areas.
Secondary benefits includ e the stimulation of the coastal economy from the
spin-off operations required to service commercial and sports fisheries,
waterfowl hunting, marinas,-boatyards, repairs and supplies, processing
operations, and tourist related industries. In addition, there is considerable
nonmonetary value associated with aesthetics, recreation, and education.
Currently, protection of the estuarine waters has been achieved through
thoughtful monitoring of commercial activity farther north and enforcement
offi'cer (see page 127).
of permit authority by the CAMA permit

Currently in Camden County there is no imminent threat to the biological,
social aesthetic or economic productivity of these waters. Of concern,
howeve;, is the continued conversion of land to .agricultural uses, which
increases erosion and the potential for over nutrification from fertilizer,
as has been devastating for the Chowan River estuary. Thus, the issues regardipg
this AEC pertain to exercising a management system for conserving and utilitzing
estuarine waters so as to maximize their benefits to people and the estaurine
system.

c. Estuarine Shoreline.

The third type of AEC in Camden County is estuarine shoreline. Although
characterized as dry land, they are considered a component of the estuarine
system because of the close association with the adjacent estuarine waters.

Estuarine shorelines are those non-ocean shorelines which are especially
vulnerable to erosion, flooding, or other adverse effects of wind and water
and are intimately connected to the estuary. This area extends from the mean
high water level or norrmal water level along the estuaries, sounds, bays,
and brackish waters as set forth in an agreement adopted by the Wildlife
Resources Commission and the Department of Natural Resources. and Community
Development (described in Regulation .0206 (a) of 15 NCAC 7H, Appendix,
page 134) for a distance of 75 feet landward.

Development within estuarine shorelines influences the quality of estuarine
life and is subject to the damaging processes of shorefront erosion and
flooding.

Because of the small scale and of overlaps with areas designated as coastal
wetlands, the fragile areas map does not show estuarine shoreline. Nevertheless,
it exists for a distance of 75 feet inland on all the land area bordering on the
estuarine waters of the Pasquotank and North River.

Currently, there are potential threats to the protection of the estuarine
shoreline in Camden County, primarily related to subdivision development
near Taylor's Beach, Texaco Beach, Whitehall Shores, and Camden Point Shores.
Incidental recreational development on the canal at the hunting club
may have implications for the shoreline of the North River.

According to the 1976 CAMA Land Use Plan for Camden County, only the shoreline
of Texaco Beach was classified as Community; while the shorelines of Whitehall
Shores and Taylors' Beach were classified as rural. South of there, the
shoreline is shown as conservation, signifying that the land should be
maintained essentially in its natural state With very limited or no public
services provided.

Most development at Taylor's Beach, Texaco Beach, and Whitehall Shores (formerly
Elizabeth City Beach) predates the CAMA designation. However, some development
of Camden Point Shores, particularly in the estuarine shoreline has occured
since the Land Use Plan has been in effect.

All development in these areas has been residential or recreational and thereby
consistent with the community and rural designations, while violating the
conservation designation of the shoreline of Camden Point Shores.

Thus, the issues facing the Commissioners pertain to better articulating
the uses it wants permitted in the estuarine shoreline, re-designating areas
for protection, and incorporating appropriate enforcement language into
its zoning and subdivision regulations. These issues are addressed below and
illustrated in the Land Classification Map, page 54

d. Public Trust Waters.

As encompassed in Section .0207 of 15 NCAC 7H (see Appendix, page 128), public
trust waters in Camden County means essentially all navigatable waters, thus
overlapping the estuarine waters discussed above. Public trust waters extend
upstream, above the estuarine water designation, to the limits of navigation.
In Camden County, public trust waters are those located in the Pasquotank
River north of the Highway 158 bridge.

Such waters are important to the County, as well as to the Coastal Resources
Commission because the public has rights in these areas, including navigation
and recreation. Additionally, these waters have commercial and aesthetic
value to the community, and are important resources for economic development.

Currently, there are no imminent threats to the public trust waters in Camden
County. Thus, the issues regarding them facing the County Commissioners
pertain to protecting the public rights for navigation and recreation and
safeguarding their biological, economic, and aesthetic value.

Alternative policies considered in dealing with all four types of Areas of
Environmental Concern include: allowing no development in AECs; attempting
to better enforce regulations of the state AEC's; and to modify the County's
zoning ordinance, subdivision regulations; and undertaking fiscal policy
decisions, so as to better protect AEC's.

Goal: To safeguard and perpetutate the biological, social, economic and
aesthetic value of the Areas of Environmental Concern in Camden County.

Objective 1:
To encourage and otherwise permit only those uses which are demonstrably
consistent with protection of salt marshes, in the following priority:
conservation; development activites that require water access and
cannot function elsewhere.

Implementation Strategies.

Incorporate language of permitted uses and non-permitted uses from
15 NCAC 7H into the County's zoning ordinancP (permitted uses include:
utility easements, fishing piers, docks, and agricultural uses as
permitted under the NC dredge and fill act--non-permitted uses include:
those enumerated in Section .0205 of subchapter 7H (restaurants -and
businesses; residences, apartments, motesl, hotels, and trailer parks;
parking lots and private roads and highways; and factories.

Objective 2:
To permit only those uses in estuarine waters which are demonstratively
consistent with the goal in the following priority:
conservation; development activities which require water access and
cannot function elsewhere.

Implementation Strategies.

Adopt the following lists of permitted uses as County policy to be
used in the granting of CAMA permits.
Permitted Uses:
access channels, structures to prevent erosion, navigation
channels, boat docks, marinas, piers, wharfs, moorin pilings.
9

Adopt the following list of non-permitted uses:
restaurants and oth usinesses, r7esidences, apartments, and
trailer parks, private roads and highways, parking lots.

Objective 3
To protect the dynamic nature of estuarine shorelines and the values.
of the estuarine system from improper development.

Implementation Strategies.

Adopt the following lists of permitted uses and non-permitted uses
as official County policy to be used in the granting of CAMA permits:
Permitted Uses:
conservation activities, recreational activities, agricultural
activities, commercial forestry, public access boat ramp, as
described under Objective 1 above, low density residential use.

Non-permitted Uses:
industrial uses, commercial enterprises other than those
connected to uses perTnitted in estuarine waters; trailer parks.

'Otherwise abide by the use standards of 15 NCAC 7H (see Appendix,
Section V below).

Designate estuarine shorelines as conservation areas on the Land
Classification Map and append it to the zoning ordinance so as to
use it in deliberations regarding development decisions.

Objective 4:
To protect public rights for navigation and recreation, also to manage and
preserve the public trust waters.

Implementation Strategies.

Adopt the general and specific use standards outlined in Section .0208,
subchapter 7H into the zoning ordinance so that the Commissioners
will have explicit criteria to use in determining the extent to
which a proposed development hinders or enhances public access to and
monitor the use of public trust waters.

Set aside public access points for private or public development for
improved access to public trust and estuarine waters near the following
locations:
1. the end of road at Old Trap (state owned land) (Shiloh Township)
2. Elizabeth City Beach (state owned land) (Shiloh Township)
3. Old Ship Yard Road (Courthouse Township")

2. Constraints to Development.

a. Physical Limitations for Development.

As shown on the maps throughout this document, Camden County is covered with
areas which are likely to have conditions making development costly or causing
undesirable consequences if developed. These include areas with natural and
manmade hazards; soil limitations; sources of water supply, and areas with
resource potential.

(1). Hazard Areas.

Several of the hazard areas in Camden County are shown on the attached Hazardous
Area Map including man-made'hazards such as the construction of Highway 17 North,
gasoline storage tanks in South Mills and fertilizer storage tanks in Courthouse
Township, the railroad along Highway 158, County landfill, the flight'path of
the Coast Guard air station in Pasquotank County, sand pits and unauthorized
dumping. Additionally, there are natural hazards such as having 50% of the
surface designated as flood-prone, and 32 miles of eroding shoreline. Not
only do these conditions affect development itself, but they pose special
constraints upon resource protection policies for the County's future.

Based upon the consultants assessment of available data, the citizen survey,
and worksessions with the CCDAC, the constraints presented by the following
hazards have been deemed significant enough to warrant policy discussion and
statements (see page 26 below).

(2). Shoreline Erosion Areas.

Of the 38.8 miles of shoreline studied in 1975, 32 miles (82.5%) show signs
of erosion. At a rate of 1,042 tons/mile/year, this represents a serious problem. Thus
concern has been expressed regarding improper development of estuarine shoreline
and otherwise, need for preventive measures for reducing the rate of erosion
elsewhere.

Alternative policies include locally adopting an erosion control ordinance
and erosion control measures in high density development near the shorelines.

Goal: To protect areas subject to shoreline erosion, particularly in the
face of larger scale development.

Objective:
7o -Prevent development near the shorelines which may increase the already
high rate of erosion.

Implementation Strategies:

Enforce the list of permitted uses and use standards for areas designated
as estuarine shorelines (see Appendix, page 134).

Contact the Albermarle Soil-and Water Conservation District (338-6616)
for erosion control techniques.
Require that appropriate erosion control measures be undertaken to
stabilize the shoreline where potential for increased erosion is great,
as determined on a case-by-case basis.

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CAMDEN COUNTY HAZARD AREAS MAP

(3). Areas Subject to Flooding.

Flood-prone areas make up approximately 50% of the C'unty's sur
0 face. Camden
County is participating in the Federal Flood Program, having adopted resolutions
to "enact as necessary and maintain in force for those areas having flood
or mudslide hazards, adequate land use and control measures with effective
enforcement provisions consistent with the Criteria set forth in Section 1910
of the National Flood Insurance Program Regulations...", designating the Planning
Board with responsibility and authority and means to delineate limits..:,
provide information for administration..., cooperate with agencies or firms
identifying flood plain areas..., and maintain records of elevations of all
new or substantially improved structures located in the special flood hazard
areas.... and to take other-actions necessary to carry out the objectives
of the program. Additionally, the Code Enforcement Officer is empowered
to require new construction will be undertaken in a manner which will reduce
flood damage.

Development of adequate policies oriented at reducing erosion and otherwise
protecting flood-prone areas as well as reducing property damage from
unplanned development, is hampered in Camden County because of the incomplete
status of the Federal Flood Program's study.

Alternatives regarding development of these areas included.allowing well
designed residential and recreational uses in these areas, establishing these
areas as conservation areas, improving the County's activity under the Federal
-Flood program, disallowing local public assistance for the reconstruction of
private structures on designated floodplains, when floods occur, and allowing
no County public works projects to be constructed in designated floodplains,
other than road and some recreational facilitics.

Goal: To protect areas prone to severe flooding from improper development.

Objective:
To equip the County Commissioners to better influence the types of development
inside areas which are flood prone.

Implementation Strategies.

Request that the Federal Insurance Administration contract for a
detailed Flood Hazard study to identify specific flood elevations
and thereby provide the background information necessary for promoting
appropriate development in the flood plain.

If indicated by the study, revise the zoning ordinance to provide
specific standards for location of development in the flood plain.

Also, if warranted by the study adopt a floodplain devel opment ordinance
to regulate location and to strengthen and enforce construction
standards,requiring flood-proofing measures, for structures located on
designated1floodplains.

(4). Soils.

Camden County contains many areas in which the soils pose limitations for
development. Approximately 54% of the County is a very wet soil with a-high
water table, in many areas inundated much of the year. These areas are generally
unsuitable for development, even if the water is drained.off. Much of the rest
of the County'is covered by soils association which pose moderate to severe
limitations for development. However, even within these areas, sites exist
which are suitable for development (see pages 106-109).

No specific soils survey has been done for Camden County, so determination
of soil suitability must be done by on-site inspection.

Alternative policies considered by the Commissioner range from designating
areas with particularly poor drainage and high water table as "conservation",
thereby not allowing their development and thereby foregoing public health
problems; doing nothing; and directing improvements like water and sewer away
from-areas which have poor soils, thereby directing higher density development
toward better soils.

Goal: To direct development with proper consideration of soils.

Objective:
To permit development in areas of unsuitable soils at a lower density and
in such a manner as to minimize detrimental impact to soil resources and
to the development itself.

Implementation Strategies.

Support the detailed soil survey scheduled to begin in 1982 and be
completed in 1985.

Work with the Health Department to identify areas of soils with
limitations for septic tanks and to enforce septic tank standards.

Identify areas where clay soils pose.severe limitations for foundations.
Alert the Building Inspector to these areas so that appropriate
construction techniques can be used.

Require submission of the preliminary plat to the Camden County
Board of the Albermarle Soil and Water Conservation District for
technical comments, which become part of the Commissioners decision
to approve.the preliminary plat.
Establish.stricter construction standards (for foundation design and
stability) for development on less suitable soils identified through
work with the SCS.

Revise Zon ing Ordinance to require one acre lots (minimum) in known
areas where soils are unsuitable for septic tanks.

3. Specific Local Resource Development Issues Relative to
Areas of Environmental Concern Designated under 15 NCAC 7H.

The Areas of Environmental Concern in Camden County are coastal wetlands,
estuarine waters and shoreline, and public trust waters.

As shown in the next section, page 22, other hazards or fragile land areas
include wooded swamps, unique scenic areas, remnant species habitats, and
cultural, historical and archeological sites.

These two fragile resource groups are particularly susceptible to adverse
impacts of development of Camden County's major resources: agriculture,
forestry, mi6ing (peat), and parks.

In this section a brief summary of local resource development issues relative
to only the AEC's is presented. Similar issues and policies for other
hazard/fragile areas will be presented in the next section.

a. Agricultural Resources.

The 1978 Census of Agriculture notes that consumption of land for agricultural
uses is rising in Camden County. Between 1974 and 1978 the total number of
farms increased 11%,. the total acreage in farms rose 7%, the number of farms
with crop land rose 16%, and the number of acres under production rose 24%.

Assuming conventional practices of fertilizing,.land clearing, increased
potential for erosion, and inevitable disruption to the ecology, these data
indicate that there i� more potential for impacts upon the Areas of Environmental
Concern now than there was in 1974, and this is likely to increase in the future.

Location of potential impact areas was achieved through comparing information
from the USGS with the Land Use Composite Map, page 68 . This revealed that
the only AEC which has agricultural practices in close proximity is the
estuarine shoreline of the Pasquotank River. (This area corresponds to the
white area on that shoreline shown on the Fragile Areas Map, page 8 ).
More detailed site inspection is required to determine the nature of these
impacts, inspections which are beyond the scope of this Land Use Plan update.

Other AEC's, including estuarine waters, coastal wetlands, and public trust
waters, are assumed to be affected by agricultural practices farther away.
No significant problems have yet been sighted.

Assuming sound soil conservation practices and basic respect for the land by
Camden's farming community, and without reports or other data of problems in
the AEC's from agricultural practices, we must assume that use of Camden's
agricultural resources are not imposing significant probl:ems upon. its AEC's.

Therefore, no policy statements, other than those stated in Section II.A.,
page 29.,were developed by the Camden Development Advisory Committee.

b Forest Resources.

Though 107 of the County's 152 land square miles (70%) consists of wooded
areas, only 20% of this wooded land is "forested" and suitable for conventional
forestry production.(see discussion in Section IV, page 87).

Interviews with citizens across the county and results of the citizens survey
rev.ealed that drainage of wooded swamps and other clearing of land for
commercial forestation has increased recently and is likely to increase
in the future.

Examination of the General Soils Map reveals that all the soil associations
in the County except Dorovan-Dare-Johnston (#10) are rated good for both
forestation and agricultural uses. Overlaying that association with the Fragile
Areas Map reveals that the poorest soils for forestry (and agriculture) are
the wetlands and areas designated as wooded swamp.

This rather even distribution of land suitable for forestry and agricultural
production indicates that sites potentially good for forestation are inland
and farther from the AEC's in Camden County (than are the agricultural resources
previously noted). Thus, potential impacts upon the AEC from forestry are
likely to be indirect, rather than direct.

Because no problems have been noted with regard to forestry and the AEC's,
no policy statements other than those in Section II. A above, page 6,
are offered here. The Commissioners feel that the existing CAMA regulations
for AEC's adequately protect the County with regard to commercial forestation
and the environment.

c. Dismal Swamp Peat Deposits.
As shown on page 20, about 1/3 of North Carolinals Dismal Swamp peat deposit
lies in Camden County. This means that bgtwgn 17 aV 25 million
c v
tons of moisture-free peat may be present in e oun y.

As noted in the 1980 Annual Report on Peat Resource s of North Carolina,
the North Carolina portion of the Dismal Swamp drains south into thF--
Pasquotank, North,and Little River systems, that is,into the public trust
waters and the estuarine waters (AEC's) of Camden County.

The North Carolina portion of the swamp is now cut with numerous drainage
canals set at I-, and one mile intervals. These canals would likely increase
run-off if the existing peat was mined, increasing the impact upon these AEC's.

Though the eastern portion of the Dismal Swamp, east of the Intracoastal
Waterway and southeastward along both sides of the Cu rri tuck- Camden County
line has been partially cleared and cultivated, no peat mining has occurred.
Thus, the Commissioners are mindful of the impacts of peat mining _in
other counties and cons'ider any proposals for mining ifi light'6f their
impacts upon the AEC's.

Because the Commi ssioners feel the State's CAMA regulations adeq uately provide
for this eventuality, -no additional policies are presented here.

20
Map of Dismal Swamp peat deposits.

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1980 Annual Report on Peat Resources of North Carolina
to North Carolina Energy Institute, U.S. Department of Energy
by Lee J. Otte and Roy L. Ingram, Department of Geology
University of North Carolina, Chapel Hill, NC 27514

d. Parks/Recreational/Conservation Areas.

The fourth type of resource development which could have impacts upon the
AEC's in Camden County consists of designated parks, recommended recreational
trails,and fishing streams. Page 86 shows the publicly owned parks
in the County.

As noted in the discussion in Section IV, pages 85 and 86 , the mos t
outstanding park resour'ce in the County is the Dismal Swamp State Park, which
could be developed into a major tourist attraction for camping, hiking, and
nature study. Full implementation of the Dismal Swamp S-tate Plan could result
in 50,000 to 100,000 visitors to the area per year. Given the park's location
adjacent to the public trust waters, there could be impacts upon this AEC if
activiti.es are not properly monitored.

Additionally, the North CarolAna Water Resources Framework (NRCD) recommends
that the public trust waters in Camden County be used as water trails
primarily for canoes. As with other intensified uses of AEC's, even for
passive recreational purposes, new impact will be occurring.

Under the same Framework, the North River Basin is recommended as a natural
and scenic river, and the North River itself is designated as a public fishing
stream. Again, increased use of these estuarine waters should be closely
monitored by the County and activities kept consistent with the CAMA guidelines
(15 NCAN 7H).

Thus, Camden has vast park/recreational/conservation areas which can attract
tourists and nature lovers. Since these are directly using the AEC's, they
will be appropriately monitored. Because the existing CAMA regulations list
,such uses as permitted and are adequate as enforcement tools, no additional
policies were developed by the Camden Development Advisory Committee.

4. Other Hazardous or Fragile Land Areas.

This section presents brief discussions, alternative policies considered and policy
choices for hazardous or fragile areas other than those already mentione@ (AEC's).
These include the County's wooded swamps, its areas which protect remnant
pecies, its potentially significant cultural, historic, and archeological
sites, and its air resources. Much of the basis for these policy choices
s

is presented in Section IV, pages 82 88 and 111 113.

a. Wooded Swamps.

As noted in Section IV, page 87 , approximately 50% of the County's land area
is covered by wooded swamp. Wooded swamps are valuable to the county because
they slow,down the rate of water run-off from developedareas thereby reducing
erosion; trap nutrients which provide feeding grounds for fish and other
species; and provide a habitat for black bear and other wildlife. These
areas are recognizable by their stands of cypress, tupelo, red maple, and
shrub swamp vegetation (alder, willow', and button-bush).

The 1981 citizens survey reported that 45% of those responding felt that
drainage of forested land (wooded swamps) to agricultural or commercial forest
uses was a slight, moderate,or serious problem facing the County (18% said
i t was - seri ous) .This is particularly true in the case of larger commercial
landowners (corporate) with regard to forestation.

Drai-nage of swamps in Camden County is understandable sin'ce much of the
land is unsuitable in its present conditionand there is much competition for
more intense (urban) uses for the more suitable land. However, continued drainage
of wooded swamps may result in several undesirable consequences.

Depletion of groundwater levels because of increased run-off.
Damage of important ecological functions now performed by the wooded
swamps, such as filtering of pollutants and nutrient entrapment for
the estuary.
Loss of wildlife habitat.
Loss of peat moss found in the pocosins.

Alternative policies considered toward preventing these consequences included
increasing enforcement of the Clean Water Act which reauires a permit from
the Corps of Engineers for placing fill material- in wooded swamps;'designating
wooded swamps as "conservation areas" on the Land Classification Map, thereby
preventing intensive use; requiring buffer zones or setbacks be used between
swamps and agricultural and forestry harvesting so as to protect the integrity
of the swamps ecological function;and the ones chosen.below.

.23

Goal: To protect and preserve the ecological value of Wooded Swamps.

Objective:
To appropriately minimize the drainage and clearing of wooded swamps and
their conversi.on to other uses.

Implementation Strategies.

Classify wooded swamps as "resource protection districts" or
"locally significant fragile area" in the County Zoning Ordinance
and develop corresponding "districts" which require a permit for
development.

In these districts the guidelines for approving permits will be the
same as those for the State AEC's, particularly coastal wetlands.
No development is to be permitted which will require dredging,
clearing,or filling except farm uses, and then, only for acceptable
amounts clearly stated in the Zoning Ordinance and enforced by the
permit officer.

Only othe r uses are to be permitted which require the interface of
wetland areas with water uses and then, only with adherence to rules
and regulations of CAMA and the Corps of Engineers.

Non-permitted uses include the extension of utilitieF and the extension of
public works projects, including those of the state, except for
light recreation.

Prohibit development or land clearing within 100 feet of the edge of
a wooded swamp so as to provide adequate protective buffer.

Require adequate erosion control practices within 100 feet of wooded
swamps. Erosion control practices to be considered include continuous
silt fences and/or continuous hay bales surrounding bare construction
sites.

b. Areas that Sustain Remnant Species.

As noted in Section IV, page 111, there are five species in Camden
County designated as remnant (endangered or threatened) by the NC Natural
Heritage Program , NRCD.
These species have been sighted inthe large wooded area west of the North River
from Broad Creek to the intersection of Indian Creek and US 158; the forested
area adjacent to the Pasquotank River from the Elizabeth City Bridge of US
158 up to the northern corner of the County; and in Dismal Swamp State Park
and adjacent forested areas at the northern end of t he County.

Alternatives considered for protection of the species through appropriately
using or not using these areas included increasing community awareness of
remnant species and AEC's; preventing development in these areas; and the
policies chosen below.

Goal: To enhance the potential of survival of remnant speci es in Camden County.

Objective:
To protect remnant species and their habitats from incompatible development.

Implementation Strategies.

Classify remnant species habitat as "resource protection districts"
in the County zoning ordinance, requiring a County permit for develop@ent.
Include species protection language in the guidelines for issuing
development permits in "resource protection districts." Permitted
uses will be limited to light recreational and environmental education
facilities which do not disrupt these habitat areas.

Allow no County Public Works projects to be constructed in remnant
species habitats, other than light recreation facilities (e.g. trails
and picnic areas).

T. F. "Buck" LEARY, Chairman
PAUL DeBerry, avice Chairman
KENNETH WHITEHURST
SAMUEL K.SHAW
J.C. ROUNTREE
CAMDEN COUNTY, NORTH CAROLINA JACK LEARY, Clerk

OFFICE OF THE BOARD OF COMMISSIONERS

Camden, N.C. 27921

August 25, 1981

Dear Resident of Camden County and Others Whom it May Concern:

The Board of Commissioners and of the County of Camden are pleased to present
The Land Use Plan of Camden County: 1980-1990.

You are invited to review it and make comments between now and the 5th of
October, by contacting Mr. Jack Leary, Clerk to the Board, at 335-4077,
or by appearing at the public hearing.

As announced in the Daily Advent, that public hearing will be held on Monday,
October 5, 1981 at 11:00 am in the commissioners meeting room . At that
time, your concerns will be considered in light of a decision to officially
adopt the plan. After adoption, the Plan will help guide the County's
development over the next ten years.

We appreciate your consideration of this matter and look forward to your
comments.

Sincerely,

T. F. Leary,Chairman
Board of Commissioners

RT/jr

c. Cultural and Historic Resources.

As noted in the discussion of cultural and historic res ources is Section IV,
page 82, Camden County has 5 sites 'listed in the National Register of Historic
Places and two on the state's National Register Study List. The Department of
Cultural Resources has a total of 58 potential historic sites in its Camden
County file; many of those. are listed in the 1976 Land Use Plan. Section IV,
page 94 also presents the County's archeologically significant sites. Currently,
there is no imminent threat to the 21 resources listed in the 1976 Plan, except
the construction of Hwy. 17 through the Dismal Swamp and the apparent damage to
the ecology of Camden Point.

As noted in the section of current plans and policies, page 98 , the County's
policy of taxing all structures at the same rate per square foot, regardless of
age and historical significance, works counter to preservation objectives.
The 1976 Land Use Plan objective of allowing historic structures that are being
restored as historic sites to be considered for a reduction in local taxes
has not been achieved. Federal tax incentives and investment benefits are
still available, however, which provide preservation financing for those in
high income tax brackets (various types of preservation) and for those in other
tax brackets (rehabilitation of income producing property).

Because 700c' of those responding to the 1980 citizens survey agree that historic
assets in the County should be preserved as an important link with the area's "
past, the policy choices considered by the Camden Development Advisory Commitfee
include publicizing the importance of the County's historic sites and the sites
identified by the NC National Heritage Program; conducting a countywide survey
of historic sites and properties; engaging NCSU in a preliminary survey; and the
ones, chosen below.

To guide development so that it protects the historic and potentially
historic properties in Camden County and perpetuates the County's cultural
heritage.

Objective:
To equip the county to better protect and preserve such assets.

Implementation Strat2.ciies.

Enforce all applicable laws regarding archeological and historic sites.

Promotu the use of federal investment benefits (10% investment tax credit,
rapid amortization, and accelerated depreciation) among eligible private
owners of historic properties as a mechanism to help finance preservation
of these resources.

Reconsider a local tax reduction for owners of historic propertie s
who show plans and progress toward restoration, as defined by locally
determined criteria.
Consider funding a countywide survey of historic sites and properties
using technical assistance from the NC Department of Cultural Resources.
In the interim the list, available from the Department, of potentiai
and known historic and archeological sites could be attached to t@e
zoning ordinance ( or included in a speci a! chapter .1 as a basis -For
iraking development decisions with more attention to these reso,@rce--:

d. Man-Made Hazards.

As shown on the Hazardous Areas Map, page 15 , man-made hazards in Camden County
consist of construction of US 17 North; fuel storage tanks in South Mills;
unpermitted dumps; the railroad along Kwy. 158; the county landfill; and the
Coast Guard Air Station in Pasquotank County. In addition, the 1981 housing
survey identified 123 vacant dilapidated structures (as well as 87 inhabitated
structures) which may be considered as hazards to safetv and well-beina.
Other points which may be considered hazards are discussed in more detail
and also mapped under the discussion of land use incompatibility problems,
page 91.
Policy alternatives considered by the Advisory Committee included leaving the
dilapidated buildings, conducting a volunteer demolition campaign, and using
the powers of county and state government to have them removed to promote health
and safety, and appealing to owners to rectify hazards or post adequate notices
for safety.

Goal: To minimize the adverse impact of man-made hazards upon humans
and adjacent development.

Objective:
To equip the county to deal with the current dilipidated structures and
other hazards and to better deal with man-made hazard issues which-might
accrue in the future.

Implementation Strategies:
Make a special appeal to owners of such property, such as inviting
them to a special meeting of the County Commissioners to discuss their
plans for improving or demolishing the units or otherwise rectifying
the hazard.
Use the state building code regarding the establishment of a County
ordinance which would equip the County to put a lien on the property
and thereby recover the cost of demolition in order to have the lien
removed.
Require a buffer zone of 300 feet between unrelated residential uses
and commercial oil and pesticide storage facilities, other man-made
hazards, and industrial facilities.
Require fences at least 6 feet high (or alternatively, clear signs)
around all sand pits, landfills, and other operations th@t may pose
a threat to the safety of passersby (this does not include public
building or recreational areas).

5. Hurricane and Flood Evacuation Needs and Plans.

In September, 1980 Camden County officially adapted an "Emergency Manaqement
Hurricane Evacuation Plan."

Because of the threat of hurricanes to the County and because of the extensive
area covered by flood-proneness, the need for this clear Hurricane and Flood
Evacuation procedure is apparent. Under the plan, the public can be made aware
of an early,warning system and steps to take for early evacuation. Such warning
can be administered through the control groups and support groups designated, and
the plan. While developed for hurricanes, this plan provides for evacuation
of low-lying, flood-prone areas.

Goal: To properly protect life and property in the wake of hurricane or flood
disaster.

Objective:
To prepar'e the residents of Camden County for appropriate action in the
event of hurricane or flood disaster.

Implementation Strategy.

Conduct an exercise annually to test the County's evacuation plan,
and conduct other forms of community education through churches,
civic clubs, and schools.

28
C. Resource Production Issues and Related Policies.

As indicated by the attention given resource protection and the-apparent overlap
between resources, like forests and prime farmland, which teeter between
preservation and production, Camden County has an abundant supply of natural
resources which are vitally important to the County's economic well being.

Results of the citizen survey and worksessions with the Camden Development
Advisory Committee identified the following priority issues regarding resource
production:

Conversion of wooded swamp to agriculture and forestry
Need to broaden tax base so as to support production
Loss of pasture lands to more urban uses
Excessive rate of shoreline erosion
Need for better forest management
Need to update zoning ordinances and subdivision regulations
Farmland erosion from wind.

Among these, the large tracts of agricultural lands and forest lands are the most
important and are the focus of the following policy discussion.

The County ooes not have a*significant current mineral production. However,
the potential of peat mining as a future energy resource warrants policy
consideration.

Commercial fishing produces considerable income from the sale of catches. in
the Albemarle Sound 'to major wholesalers in Elizabeth City and therefore will
receive promotional consideration below.

Recreational fishing of the North River is not considered a "resource production"
issue in Camden County and therefore will receive policy development.

The Advisory Committee does not consider the use of off-road vehicles to be
problem, and it will not receive policy development.

1 Agricultural Lands..

As noted in the discussion in Section II, page 18 and Section IV, page 87
@egarding the productivity of Camden's agricultural resources, agiriculture
is the heart of the local productive economy.

Between 1974 and 1978, the total value of farm production dropped from S15,170,000
to S14@,500,000 and income per farm declined from $101,000 to $87,000.
Nevertheless, the value of the average farm rose 66% from $171,000 to $285,000.

Thus, from the standpoint of income and local tax base, it is essential
for the agricultural resources in Camden County to remain productive. One
way to do this through the Land Use Plan is to protect productive agricultural
land from inappropriate and encroaching urban-type development.

The range of policies available to the County to 'promote the productivity
of prime agricultural land extends from passive support to active intervention.

Through innovative taxation and zoning programs, the County could encourage
the use of land resources at the most economically productive level. This
@olicy could discourage speculation and promote the use of lands not presently
in cultivation. Depending on a local owner's ability to improve or expand
farming activities, the County could develop a strategy to promote short-
term profits, increasing conversion of farm land.

On the other hand, a less intervening policy is one that rewards sound farming
practices and-directs the natural conversion pressures into marginal areas.
A policy of long term gain in agricultural productivity could have two aspects:
improved management through education and soil fertility improvement programs.
The introduction of more labor intensive crops to the County could generate
more local demand for labor and affect the job commuter and possibly the
youth out-migration rates. Such a policy of steady increase in agriculture's
share of the county economy is consistent with a rural farming past and its
projected future.

Goal: To achieve maximum sustained yields from Camden County in a manner
@,,4hich is consistent with other development goals.

Objective 1:
To impro-ve local agricultural management techniques.

Implementation Strategies.

Assist in farmer education through use of county buildings for classes
and in other ways support the Agricultural Extension Service.

Establish financial rewards and incentives for good management
practices through provision of administrative advice and assistance
to applicants for Albermarle Soil.and Water Conservation District's
assistance through SCS and ASCS programs; work with these agencies
to create a tax claZ-,ification (tax break) based upcn st,und maragemeni.,
oracLices.

Objective 2:
To maintain acreage for agricultural production (and limit its conversion
to other uses).
Implementation Strategi*es.

Develop agricultural zoning, separate from the current RA zones,which
better protects agricultural productivity.

Develop preferential tax treatment for lands in production or cover
cropped so as to stimulate and maintain production. Simultaneously
reduce taxes on wooded swamps and other'untillable land so as to not
inappropriately stimulate drainage, etc.

Classify agricultural lands as "rural" in the Land Classification Hap.

Discourage extension of public services (such as water and sewers) and
facilities into prime and 'Other very good farmland through the A-d15
review prbcess and other mechanisms for safeguarding environment.al
impact.

2. Commercial Forestry Production: Existing and Potential.

Though 107 of the County's 152 squaremiles of land (70%) is covered by woods,
only 20% of this wooded land is "forested" and suited for commercial forestry
production (see Section IV, page 87).

1-1hile lumber and pulp-wood operations have not been extensive, timberland,
like agricultural land, is a prime productive resource in Camden County.
Examination of the General Soils 1,11ap in light of existing land use patterns
indicates that the land good for timber is also best for other uses. Thus
it is important that. if forestation is to reach its economic potential,
close attention should be paid to the manner in which competing uses for land
fit together.

Policy alternatives regarding forestry productivity range from discouraging
it to active promotion. Since the economic importance of lumber products is
still small, discouraging further development would not create significant
economic disruptions. On the other hand, a policy which actively promotes
sound forestry practices while preserving certain areas unsuitable for management
(wooded swamps, conservation areas, etc.) may lead to an increase in the role
of lumber products in the County's economic base, particularly since wood is
becoming a significant energy source.

Whatever strategy is chosen, care must be taken to ke.ep.in balance the desire to
protect remnant species and the environment while appropriately undertaking
economic production. Like the tight rope between increasing agriculture-
and draining wood swamps balancing goals regarding forestry is the essence
of thi@s "Resource Produciion" section of this Camden County Land Use Plan.
In this light, alternatives considered by the Advisory Committee include:
supporting selective federal and state programs- that deal with the management
of commercial forests in the county; setting aside areas as prime timber
land so that potential conflicts with remnant species areas are clear; limiting
public investment into Prime timber areas so as to channel community development
(urban) uses elsewhere, and the policies chosen below.

Goal: To achieve maximum sustained yields from forest resources in Camden
County in a manner which is consistent with other development goals.

Objective 1:
To improve local forest production management techniques.

Implementation Strategies.

Assist in education of forest owners through use of county buildings
for classes and in other ways support the Agricultural Extension
Service.

Establish financial rewards and incentive for good management practices
through provision of administrative advice and assistance to applicants
for US Forest Service and ASCS programs; consider creation of a
tax classification (tax break) based upon management practices.

32
Objective 2:
To mainta7 acreage for forest production (and limit its conversion to
other uses).

Implementation Strategies.

Develop woodland zoning, separate from the current RA zones,which better
protects timber productivity.

Acquire conservation easements in critical areas.

Develop preferential tax treatment for lands in production or cover
cropped so as to stimulate production. Simultaneously reduce taxes
on wooded swamps an.d other untillable land so as to not inappropriately
stimulate drainage, etc.

Classify forest lands as "rural".in the Land Classification Map.

Discourage extension of public services and facilities into prime
farm land through the A-95 review process and other mechanisms for
safeguarding environmental impact.

Objective 3:
To develop markets for local forest products.

Implementation Strategies.

Attract users of local forest products through: coordination with
the NC Department of Natural Resources and Community Development
for prospective business contacts (dry kilns, saw mill operations,
frame-making shops, etc); utilize technical assistance available
for such economic development from ARPDC in-Hertford, NC to
prepare brochures on local products for distribution to farmers at
cost for use in their advertising activities.

Provide information to prospective markets elsewhere through county
offices or local extension services.

Where possible, use local material in county construction projecICs.

3. Mineral Production: Peat and Sand/Gravel.

As shown on Exhibit 20 , page 20 , about 1/3 of North Carolina's Dismal
Swamp peat deposit lies in Canden County. This means that between 17 and
25 million tons of moisture-free peat may be present in the County.

These deposistsare highly organic and more than 70% combustible making them
attractive for use as fuels in industrial and electrical produciion.

Additionally, the following maps shows the sites of sand pits formerly under
production. Betveen 1970 and 1975, these pits produced an average of $3,750
per reporting year,* with 1977 being the peak year at $7,000.

Alternatives considered regarding the County's mineral production: inducing
and encouraging further study into the peat concentration and its potential
and encouraging the continued development of the County's limited sand and
gravel resources.

Goal: To develop mineral resources in a manner consistent with other development
goals, particularly related to AEC's and agricultural/forestation.

Objective 1:
To develop markets for local sand/gravel resources.

Implementation Strategy.

Use local sand for all county projects.

Objective 2:
To allow development of the peat reserves if it does not. result in adverse
environmental impacts.

Implementation Strategies.

Maintain control over extraction through designation of peat reserves
as shown on the map on page 20 as a "resource area of local concern"
in the County's Zoning Ordinance, thereby requiring a permit for extraction.

Institute a county severance tax (if possible).

Source: US Department of Interior, Bureau of Mlines With NR-CD, The
Industry of North Carolina.

4. Parks and Outdoor Recreation Sites.

Parks and outdoor recreation sites are.a potentially valuab.le productive resource
to Camden County. Several of.these have been addressed under discussion of
Fragile Areas, page

The most outstanding undeveloped resource is the Dismal Swamp, which has
its own Master Plan for development of selected sections. It would provide limited
access 'to visitors for camping, hiking, and nature study. Full implementation
of the plan could bring 50,000 to 100,000 visitors to the area per year.

Alternatives considered with regard to promoting this resource include
withdrawing the $10,000 per year paid to Elizabeth City and developing public
recreation in Camden County, potentially one site per township; undertaking
new strategies for promoting public access to public lands and waters;
approaching the state for further development of the Dismal Swamp Master Plan
and the policies chosen below:

Goal: To increase the productivity of recreational resources, including
-f-o-urism, in Camden County.

Objective:
To increase recreational opportunities in the County, particularly in the
State Park., on other state owned lands and in areas designated in the
discussion (Section IV, pages 86,111, and 112).

Implementation Strategies:

Direct development of tourist facilities to those areas most able to
support such activities and @where adverse impacts on local residents
and the environment are minimized.

Support resurrection of the State Dismal Swamp Master Plan and seek
its implementation.

Support the development of public or private access points (to public
lands and waters) on at least one site per township.

Acquire access easements in areas where development has already occurred,
if necessary.

Selectively require access easements in new development, with particular
attention to scale (size) of development, through revising the sub-
division regulations accordingly.

5. Comercial and Recreational Fishing.

Commercia I fishing has been important to the County only through the sale of
catches by individuals to markets in Elizabeth City. Therefore, no official
policy is developed here other than to support all federal and state programs
dealing with management and production from commercial fisheries.

Recreational-fishing has received attention under the North Carolina Water
Frameworks (NRCD), in that the North River has been recommended as a
Designated Public Fishing Stream. While no official policy is Presented
here, the Commissioners wish to support this designation and intend to monitor
its implementation regarding impact upon the AEC (estuarine shoreline).

6. Off-the-Road Vehicles.

The Board of County Commissioners has determined that off-the-road vehicles
are not a problem, nor are they likely to have adverse impact on the value
of the area's productive resources in the future.

D. Economic and Community Development.

In accordance with the CAMA guidelines for land use planning, the following
issues are identified for policy discussion within the economic and community
development category:

Types of development whi ch Camden County wants to encourage, particularly
regarding redevelopment of older areas and creation of new subdivisions

Policies on types and locations of industries desired;
Local commitment to providing services to development;
Types of urban growth patterns desired;
Redevelopment of developable areas.

Commitment to federal and state programs in the area;
Assistance to channel maintenance and beach nourishment;
Energy facility siting and development;
Tourism or beach and waterfront access.

Among these issues, local priorities are treated with explicit policy statements
and others given for discussion only.

1. Types of Development Which Camden County Wants to Encourage.

Camden County is proud to be an agricultural community with a slow growth rate.
The County Commissioners wish to maintain this trend or undergo a slight increase,
as do 78'IYO of those who responded to the 1981 citizen's survey. Only 20'10
want the County to strive to grow substantially over the planning period. This
preference for slow growth was also a strong preference in the 1976 Land Use Plan.
Since that time, development issues have remained similar.

The promotion of manufacturing or assembly industries encouraged in the
1976 plan has not occurred nor apparently, has an economic situation which
would stimulate such development. No strong infrastructure has been developed,
primarily because of the low tax base and chosen slow growth policy adopted
by the County. Some commercial objectives were, however, achieved as a small
shopping center opened in Courthouse Township. This type of development
is expected to increase as the cost of driving to neighboring counties for
basic needs increases.

Residential development has increased slowly. The development of second and
recreational homes has proceeded slower than anticipated, especially in Camden
Point Shores. Mobile homes are scattered throughout the County, often
along major roadways where land for existing and potential development lies.
Other uses such as institutional and recreational opportunities have not
changed significantly since 1976.

The population projections (page 120 ) show that without a deliberate strategy
for industrial and commercial recruitment, the County's slow growth
philosophy is likely to fulfill itself. Opportunities for stimulating
development were identified in the 1981 citizens survey which also provided
information about the types of development the County desires.

37
As. shown below, there are relatively strong feelings for both development
(agricultural, industrial, commercial , and tourism) and preservation (environmental,
historic and natural resources) in the County, This illustrates the unique
opportunities for development choices open to the Commissioners and also
provides more incentive for use of this land use plan as a decision guide over
the next decade. Disagree-
Type of Development Agree-Strongly Agree Neutral Strongly Disagree
Environmental Protectfon 74% 14% 12/0
More Industry to Supplement 6 4 0'0 210110 15 OiO,
Agriculture
Tourism 5 2 0% -0- .48%
Preservation of Historic 83% 13% 4%
Properties
Agricultural Development 7 2 oio' 12 16 0/,0'
Commercial Development 4 4 %0 2% 540/10

101
Natural Resource/'Wildlife 85% 140% /0
Protection

Respondents were also supportive of development of second or recreational homes.

Before Camden County can undertake any of the more urban type of development,
it must realize that it has a larger problem in stimulating and sustaining
development than in directing it. Thus, the impetus of much of the economic
and community development policies which follows is directed at generating
appropriate and desired growth in an orderly pattern. That pattern is shown
on the Land Classification Map in Section III.

As an overall statement of intent, the County Commissioners adopted the following
general goal for economic and community development:

Goal: To achieve desired levels, types, and patterns of
economic and community development which 'are consistent with
the historic character of the County, raise local employment
levels, and otherwise contribute to the local economic base,
so as to implement the Land Classification Map.

Below, alternative policies for the categories outlined in the CAJMA regulations
are presented with a choice of policy (stated as an objective for that
particular type of land use). Implementation strategies which the County
Commissioners selected are presented as well.

2. Type and Location of Industry.

The citi@zens survey showed considerable interest in attracting industry to the
County, primarily for purposes of local employment. Currently, the forestation
resources and potentially the peat concentration in the northern part of the
County provide a basis for industrial recruitment. Care, however, must be applied
to the type and location of whatever industry is attracted since the capacity
to provide water and poor soils suitability of certain areas restrict the
construction and operation of a large scale industry. Thus, the small scale
operations which are non7POlluting in nature and which could employ local
people are desirable to the County to the extent that such location and
operation does not take prime agricultural land out of production.'

Alternative policies considered issues that attract i ndustries which are light
and clean and which would hire local people. This effort includes obtaining
assistance from the Albemarle Regional Planning and Development Commission
for industrial recruitment approaching companies already operating in the County
(such as the 1,@Jeyerhauser Company) to discuss options for establishing
processing plants (saw mills') in the Cobnty instead of carrying logs to
distant mills, and using state industry- 1 ocati ng efforts to reach the broader
industrial population.

Objective:
.To encourage location of light industry within Camden County, provided
certain performance standards are met, and that industry is located near
existing communities, and does not use prime agricultural land.

Implementation Strategies.

Prepare a list of properties that are available and suitable for
commercial or industrial development. These properties should be
tested for percolation and soil characteristics and re-zoned multi-
use if necessary and promoted as a development site. These properties
would not be taxed as such until they are purchated for that use.

A brochure should be prepared to promote sites that meet percolation
requirements, zoning requirements, and are available for development.
Consider the development of performance standards for future industrial
development. Such standards should include the definitions of
"light industry" with respect to permitted levels of noise, vibration,
pollution, traffic, and demand upon community facilities and county
services.

Become a part of a regional development strategy, through the
Albemarle Regional Planning and Dpvelopment Council or other
organizations. A key part of this strategy would be to organize
a countylevel Economic and Industrial Development Commission to work
on behalf of the County Commissioners. This group (5 member citizens
group appointed by the County Commissioners) will work to: assist in makling
county information and development needs known to the regional
orgAnization; i.dentify and consult with state agency industry at
location activities; consider approaches used to successfully attract
industry to rural areas; investigate local capital sources for industry;
determine what kinds of assistance personnel, services, utilities,
tax incentives and other forms of support the County (or local communities)
would be willing to offer; investigate the benefits to the County of
issuing local industrial. revenue bonds to attract industry; use the
land use plan update as a basis for preparing a resource inventory for
prospective industries and approach industries which make use of the
agricultural, mineral, and forestry potential of the County; work
with local property owners to encourage better availability of land
for appropriate industrial development; and carry out other requested
assignments on behalf-of the County Commissi.oners.

3. Local Commitment to Providing Services for Development.
The County has an operating budget which may not support addit ional
development. Thus, one primary element of any development strategy is to
,undertake selective financing strategies that strengthen the County's development
capacity.

Currently, the County's support takes the form of providing staff who assist
developers in complying with local, state, and federal regulations regarding
projects and contributing to various planning projects which provide a basis
for locational and other development decisions.

Alternative policies considered for development of the County's commitment
for services to development included: additional grantsmanship; lending financial
support to the South Mills Water Assocation to enable service to a larger
portion of the County and the areas chosen below.

Objective: To provide significant forms of local commitment toward
providing services to development.

Implementation Strategies.

To lend support (other than financial) to the South Mills 14ater
Association in its effort to obtain water required to meet existing
demand for expanded water system. Also, to investigate the potential
benefits to the County of investing minimal tax funds in the system.

To acouire voluntary technical assistance from NRCD in preparation
of an inital capital improvements budget to explore the feasibility
of increasing county support to selected development.

Identify particular state and federal programs which pursue thecommunity
and economic development policies herein articulated and develop
action strategies for implementing those programs in Camden County.
This selection will be the responsibility of the Commissioners.

Engage in a program to secure selective state and federal assistance.
The County anticipates that limited County financial assistance will
be available for support, mainly in the form of local-cash and in-
kind match for high priority programs only.

In general, to support other state and federal programs including
programs required by law.

Work tolqard establishing a "partnership" with private land owners
in those areas which are compatible with the development goals of the
County.

4. Type of "Urban" Growth Pattern Desired.

The Land Classification Map in Section III visually presents the pattern of
development desired by the County. -At the base of that pattern is concern for
growth within existing population clusters.

The County Commissioners,discussed several alternative policies regarding
residential, commercial and industrial, cultural and institutional, and
agricultural and forestry development patterns. These are summarized under
each specific heading below, with chosen policies and implementation strategies.

a. Residential"Development Pattern.

Alternatives considered include disregard for location of residence with
regard to whether they are year-round or permanent; leaving the development
of ne-i subdivisions to the market; undertaking a strong residential development
program; and encouraging residential development in a pattern similar to that
n ai in the county.

Objective:
To develop permanent resi.dences in accordance with the zoning ordinance
and to develop summer and waterfront recreational homes in areas
shown on the Land Classification Map as "community" and to a lesser extent,
"rural residential").

Implementation Strategies.

Conduct a housing market analysis based upon the completed housing
conditions survey, demographic data, and a measure for effective
housing demand.

Revise Zoning Ordinance separately to encourage the development of
private multi-family housing by providing zones where more intensive
development can occur.

Revise Zoning Map to more selectively permit mobile homes on individual
lots with respect to commercial and other land uses.

b. Commercial Development Pattern.

Overall, the major theme for commercial development was the desire to keep
the communities small and have shops and accommodations to support the tourists
and hopefully, the growing number of county residents.

Commercial development is to be encouraged in proximity to where it now exists
(see Existing Land Use Map, pages 68 to 81). such a development pattern is
reflected in the Land Classification Map as "transition" and "community"
(page 54

Alternative policies the Commissione rs discussed with relation to commercial
patterns inc'luded, avoiding strip development, and promoting commercial
development in the areas designated-on the Land Classification Map.

Objective:
To promote-commercial development that is designed to directly relate to
other commercial activities, and in the pattern prescribed in the Land
Classification Map.

Implementation Strategies.
Contact the Department of Highways add local members of the North
Carolina Transportation Board to express the strong desires of the County
Commissioners for changing Hwy. 17 from "limited access" to general
(unlimited) access, so as to prevent "economic by-pass" of South Mills.
See "e" below.

c. Cultural, Institutional, and Recreational Development Pattern.

As noted in the survey of existing land use, the pattern now exhibited
by cultural and institutional development is more or less compatible with
surrounding land uses. Given this, there are recreational and natural resource
areas which can provide a broader base to the Countys economy and amplify
Camden County as an attractive natural recreational area. The County, then,
favors a pattern of cultural, institutional and recreational development
which protects natural resources yet enhances the County.

Alternative policies considered for location of cultural, historic, and
recreational development included: work more closely with the state and others
to enhance such uses within the County; develop better cofnmunication with
owners to convey the County's goals related to cultural, institutional and
recreational properties; and effectively use the powers of county government
to promote orderly development more consistent with surrounding land uses.

Objective:
To develop the cultural and institutional land uses in accordance with
the Land Classification Map, in the categories designated "transition"
and'"community", and otherwise protect the existing pattern of such
development elsewhere.

Implementation Strategies.

To inventory potential sites for public recreationand review possible
sources of State and Federal funds for development of recreation facilities.

To request the NC Wildlife Resources Commission to acquire and develop
a public access area(s) for boat launching in Camden County.

For other cultural and institutional use patterns, see "e" below.

d. Agricultural and Forestry Development Pattern.

As mentioned under the Resource Protection policy discussion, page 18,
agriculture has long been a major part of the County's economy. The pattern
of this type of land use is of more and more concern to the County Commissioners
as external pressures, such as Hwy. 17 North, and potential mineral production,
as well as economic and community development patterns vie for agricultural
land, albeit at a slow rate. So far, the chosen pattern of agricultural
use has been enforced by reluctance to sell and the County's Zoning Ordinance.

The Land Classification Map shows the chosen pattern of rural and forestry
development as "rural", which sets aside these areas for production purposes.

Alternative policies regarding agricultural and forestry patterns include:
leaving the sale of such properties to individual owners regardless of economic
impact to the community; development of subdivision regulations and undertaking
a developer recruitment campaign to stimulate orderly development on ava4lable
tracts now used as agricultural; and using the County Commissioners powers
to effectuate better patterns of such uses.

Objective:
To concentrate agricultural and forestry uses outside the existing
Town limits as shown on the Land Classification Map.

Implementation Strategies (See "e" below).

e. Implementation Strategies for the Commercial, Cultural, and
Agricultural/Forestry Objectives Above.

Revise Zoning Ordinance and the subdivision regulations to better
implement the Land Classification Map.

Investigate the use of positive tax incentives or capital investments
by the County to help foster development in the chosen pattern
(Land Classification Map).

5. Redevelopment of Developed Areas. 44

The overall strategy of redeveloping the developed (clustered) areas of the
County has been articulated above. This section, then, will concentrate
upon recommendations for improving the commercial and residential fiber of
already developed areas.

The County Commissioners realize that Camden's vast shoreline renders the
County attractive for scattered development in new areas, often at the expense
of the older areas. Additionally, external pressures, like those associated
with Hwy. 17 which by-passes South Mills to the west can drain commercial
activity which could help foster redevelopment of communities.

Thus, the Commissioners face the pressures, plus the recent drastic cutbacks
in federal assistance for redevelopment (community development). These
cutbacks are particularly related to building infrastructure and providing
operating capital to small businesses. Additionally, the County's residential
pattern and its relatively good housing stock, has hurt its chances for
qualifying for -ederal rehabilitation funds to improve housing in its rural areas.

Thus, in line with the chosen "cluster development policy" and the Land Classification
Map (transition and community areas) the Camden County Development Advisory,
Committee considered the following alternative policies for stimulating
development in the already developed sections of the County: increased
grantsmanship; improved zoning and subdivision regulations; and continuing
the Camden County Development Advisory Committee to assist in attracting development
to already developed areas (see page 54

Objective:
To encourage redevelopment of existing communities, primarily those designated
as "transition" and "community", especially reqarding commercial and residential
development.

Implementation Strategies.

Become part of a regional development effort, and place special
attention on redevelopment of selected areas.

Obtain technical assistance in working with existing businesses toward
acquiring necessary operating capital and conducting business planning.
Yndertake selective measures to improve the housing stock, particularly
in already developed communities, so as to-provide a firm base for
location of other types of development. Strategies should include
a (voluntary) demolition strategy, coupled with a housing rehabilitation
program.

Designate areas that are transition and community as "County Revitalization
Areas" and conduct special revitalization efforts on a prioritized
basis. Strategies could include a community fund drive and participation
in federal and state programs aimed at revitilization of developed
areas.

Contact the Department of Highways and local members oil the N.C. Transportation
Board to express the strong desires of the County Commissioners for
changing Hwy. 17 from "limited access" to general (unlimited) acccss, so
as to prevent "economic by-pass" of South Mills.

45
6. Commitment to State-and Federal Programs.

Section IV shows a list of state and federal programs which impact Camden
County and contribute to its character. Currently, several of the programs
are effectively protecting Areas of.Environmental Concern.

Camden-County has supported such programs which it feels necessary and cost
effective to support.

Alternatives considered to enhance the County's commitment to state and
federal programs include: initiating a letter campaign to all state and federal
agencies listed in this document, and others identified as need arises, to
open communication and inform them of Camden s needs and policies; and
attainment of technical assistance to address those needs.

Objectiv :
To selectively support state and federal programs related to Camden
County.

Implementation Strategies.

Engage in a selective grantsmanship program to implement selective
state and federal programs, through technical assistance at the
regional level.

7. Channel Maintenance and Beach Nourishment.

Camden County regards the matter of channel maintenance as being out of its
jurisdiction and therefore has no policy regarding it in this document.
It does, however, support the Coast Guard and other bodies in their responsibility
for maintaining the channels of the Pasquotank and North River, and the
Corp of Engineers in maintaining the lock of the Dismal Swamp Canal. The
County of course, has no beaches other than river's edge, which is regulated
under CAMA for permit purposes.

8. Energy Facility Siting and Development. 46

Currently, there are no energy facilities within the County. The Board and
County Commissioners express desires that none be developed which would have
detrimental impacts on the estuary or agricultural land uses.

The County recognizes the necessity for the development of facilities for the
production of alternative fuels, but wishes to discourage siting of large
facilities near existing clusters of development.

Objective:
To achi.eve appropriate levels of energy faciliti-is.

Implementation Strategies.

Revise the Zoning Ordinance to require a special use permit to construct
any energy production facility in any zone.

Undertake a feasibility study, in establishing a Gasohol Production Co-op
which would purchase corn from local farmers for production of this
energy efficient alternative fuel. Acquire technical assistance
and solicit the support of state and federal agencies in acquiring funds.
If necessary, rezone areas of the County industrial in order to accommodate
the attraction and development of the Co-op. Develop fiscal support
for the co-ops development through not taxing such land as industrial
until the co-op has begun operation.

9. Waterfront Access.

There is private boat access to the Pasquotank River, and several roads serve
as public access, onto the waters edge. The County Commissioners felt that
this is inadequate, but that the County has insuffient funds to develop
public access facilities. The Board chose to forego the responsiblity and
continuing expense of upkeep, police, and spillover effects of parking, etc.

The County Commissioners encourage the development of private or public access at
these sites: Old Shipyard Road, Neck Road, and at the end of Hwy. 343.

E. Continuing Public Participation Policies.

In accordance with the CAMA guidelines for land use planning, the following
discussion outlines the.means by which public participation in planning matters
is to be conducted in the planning process; the means to be used for public
education on planning issues, and the means to be used for continuing public
participation. First, a brief description of the methods used to develop
this CAMA Land Use Plan will be discussed as the foundation for future citizen
participation efforts.

Camden County has an active Board of Commissioners which contributes considerably
to the representative nature of planning and planning decisions.

The County, through its history of planning (see local plans and po licies,
page 94 ) and concern for citizen participation, led the Commissioners to
retain technical assistance for preparation of this plan from a firm with a
strong citizen participation background. Through recommendations from Planning
and Design Associates, P.A., the Board conducted a random sample survey (see
Section IV for survey questionnaire), to property owners in the County; held
monthly meetings which were announced in advance; and conducted interviews
with several citizens related to planning issues during the process.

During the preparation of this document, the Camden County Development Advisory
Committee was clear in its desire to continue close contact with its citizenry.
The Committee realizes that such involvement is important in both the development
and enforcement of land use policies so that the spirit of community is enhanced
as the County grows physically and economically. Issues discussed included
theseand other purposes of participation in land use planning; definition of
varying interests among publics; representative bodies and responsibilities;
and communication methods.

Alternatives discussed with regard to these issues included: limiting par-
ticipation to selected committees or boards appointed to represent the
County; publishing required'Iegal-nbtices for public hearings; establishing
ad hoc citizen committees of the Board as need arises; and conducting an
educational campaign encouraging participation at monthly meetings.

Goal To achieve meaningful participation in land-use and related planning
matters in the County.

Objective 1:
For parti,cipation itself: to provide opportunities for participation in
the land use planning process by residents of the County individually
and in representative groups.

Implementation Strategies.

Revise the Zoning Ordinance so as to send written notice to neighbors
prior to a public hearing on amendments of the Zoning Map and to
post notification signs on property.

Send citizen opinion questionnaires to residents at least every five
years to gauge public opinion and how this opinion has changed prior
to the update of the Land Use Plan.

Hold a semi-annual meeting of the Board to evaluate the Land Use Plan
and its implementation. Prior to that meeting, have news articles
regarding meeting and specific issues to generate public interest.

Objective 2:
To encourage active Participation in land use discussion by all sectors
of the population including all economic, social, cultural, and ethnic
groups.

Implementation Strategies.

Develop a roster of civic organizations and key individuals to be
notified of public meetings regarding land use issues, and request
that members of these organizations be notified.

Publicize notices of meetings in the local newspaper preceded by
feature articles on specific issues to be discussed and invite all
interested citizens to attend.

Objective 3: f the County anId its planning area about the issues 49
To educate the citizens o
facing the area regarding matters of resource protection, resource
production, community and economic development, special issues and ways
in which citizens may participate in the County's planning process.

Implementation Strategies

Prepare public information brochures regarding:
CAMA Land Use Plan and its implementation process for distribution
in annual tax bills.

Prepare public information and education programs for presentation
to civic groups, churches, and school classes to inform the public
about the CAMA Land Use planning program and to encourage active
participation in the process.
Prepare press release for local neispaper following selected Board
meetings in cases when no member of the press had been present.
Prepare educational news releases on the planning program in the County
explaining the issues to be considered and decisions pending.
Hold workshops for residents of.the County and the surrounding planning
area with technical assistance to educate citizens about the planning
process and other facets of the CAMA program.

F. Other Specific Issues That Must be Addressed in the Camden Land Use Plan.

Attachment B" of the contract between the State of North Carolina and the
County of Camden stipulates that the special issues of mobile homes and second
homes/waterfront development be addressed in this plan.

1. Mobile Homes.

Mobile homes, in Camden County, have posed some concern for overall
development of the County, in that their taxable value is low and depreciation is
so rapid that they contribute little to the County's ability to support other
forms of development; they @are still stigmatized, after years of the housing
industry's failure to produce a more responsible form of less expensive and
convenient housing; and are crowding the roadside now in choice areas of commercial
development. The Commissioners have developed a zoning ordinance which prevents
overly concentrating mobile homes into "parks", and otherwise, works to promote
orderly development where mobile homes are needed.

Alternatives regarding mobile home development in-the County include: doing
nothing; prohibiting them in areas designated best for commercial use (even
along rural highways); and the policies below:

Goal: To accept the mobile home as a reasonble form of standard housing,
and make it's use in the County as appropriate as possible.

Objective:
To control factors leading to extremely rapid growth and unplanned growth
of mobile home development.

Implementation Strategies.

Provide for mobile home develpment areas in the County (separation
of residential areas will help prevent conventional home devaluation).

Provide for mobile.home development in subdivision regulations and
zoning ordinances which better implement plan recommendations.

51
2. Second Homes/Waterfront Development.

The issue of impending ecological damage in Camden Point Shores and the growth
of other areas such as Whitehall Shores has stimulated concern on the part of
the Office of Coastal Management regarding second homes/waterfront development
in Camden County.

The policy regarding stimulating development in already developed areas
(clusters) is emphasized again here, since it pertains particularly to second
homes/waterfront development. This is important since the excessive amount
of eroding shoreline and previous encroachment upon wooded swamp (Camden Point
Shores) is ample warning of problems from poorly planned development.

Alternatives considered in response to this issue included permitting such
development anywhere on the shoreline, permitting it only in the areas designated
as "community" on the Land Classification Map, and leaving its regulation to
the State, since all shoreline development is either on the shores of public
trust waters or more desirably, on estuarine shorelines.

Goal: To control adverse environmental impacts of second home/waterfront
development.

Objectiv
To direct such development toward existing concentrations of such development.

Implementation Strategies.

Revise the existing zoning ordinance to promote this concentration.

Pay especially close attention to the C41A regulations in granting
local permits on the estuarine shoreline of thePascfuotank River.

Conduct a study of flood-plains and establish development districts
and construction criteria for second/recreational houses in
the flood-plains.

G Consistency with Land Use Ordinances and CAMA Improvement Plans and 52
Budgets.

In accordance with CAMA regulations, the Zoning Ordinance of the County of
Camden has been modified to make it consistent with the land use planning
regulations and the Coastal Area Management Act regarding areas of
environemental concern. Additionally, they are scheduled for update
to implement this Land Use Plan as reflected in the foregoing policy statements
and as illustrated in the Land Classification Map.

H. Related Plans, Policies, and Regulations.

As mentioned in the foregoing policy discussion section, the development of
the Land Classification Map has been undertaken after thorough review of
local, county, state, and federal plans impacting the County.

I. Intergovernmental Coordination and Implementation.

The preceding discussion of policies and the Land Classification Map are to
serve as the basic tools for coordinating numerous policies, standards, .
regulations, and other.governmental activities at the local, state, and federal
levels.

Because of the level of discussion during the development of the Land Classification
Map and related policy statements, a better framework has been established
for budgeting, planning, and provision of community services; better coordination
of requlatory and promotional policies; and better decisions for Camden County
and Currituck County.

J. Public Participation.

As noted earlier, the County.of Camden used its Advisory Committee, public
notice of monthly, regularly scheduled meetings, a citizen survey, and interviews
with local officials as its participation method. In this manner, a wide
cross-section of citizens was actively solicited and considered, and became
a fundamental element in the deVelopment of the planning activities, its adoption
(forthcoming) will be an important part of future amendments to the plan and
moreover, its successful implementation.

53'

Ill. LAND CLASSIFICATION.

In accordance with the guidelines for land use planning (15 NCAC 7B, Section
0200), and based on consideration of the citizens survey, available data,
work sessions with the Advisory Committee and its consultants, and consideration
of the policy statements developed above, the 1976 Land Classification Map
and the 1978 Sketch Development Plan (Map), this section presents the land
classification system developed for the County of Camden. By delineating land
classes on the following map, the County and its citizens have specified those
areas where certain-policies (local, state, and federal will apply.

To this extent, the'land classification provides a frame-work to be used
by local governments to identify the future use of all lands in its planning
area. The designation of land classes allows the Board to illustrate its
policy statements as to where and to what density they want growth to occur
and where they want to conserve natural and cultural resources by guiding
growth.

Whi le the areas shown on this map do designate areas of the "planning district"
which are best suited for particular uses, it must be remembered that land
classification is merely a visual reference to help implement policies and not
a strict regulatory mechanism.

The CAMA land classification system includes five broad classes: developed;
transition; community; rural; and conservation.

In the County of Camden, the classes of "transition", "community" and
conservation" readily apply as defined in the CAMA guidelines. The definition
o"f rural has been modified and will herein be referred to as "rural-residential"
and "rural-production". There are no lands appropriately categorized as
developed" within the County.

It -is to the detailed discussion of the land classification that we now turn.

17 &4"
54

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2-South Mills-East
3-Camden-West
4-Camden East-Belcross
V
5-Whitehall Shores
6-Taylors Beach
7-Shiloh
8-Texaco Beach
9-Old Trap
10-Camden Point Shores

.6 7

LAND
CAMDEN COUNTY CLAWIFICA'nori
MAP

elm"

A. Developed.

The purpose of the developed class is to provide for continued intensive
development and redevelopment of existing cities. Areas to be classified
"developed" include lands currently developed for urban purposes at or
approaching a density of 500 dwellings per square mile with usual municipal
or public services including at least public water, sewer, recreational
facilities, police and fire.protection.

Since there are no qualifying areas in Camden County, no areas are classified
as "developed" on the Land Classification Map.

B. Transition.

The purpose of the tra nsition class is to provide for further intensive urban
deve-lopment,within the next ten years on lands which are most suitable
and that will be scheduled for provision of necessary public utilities and
services. According to the CAMA guidelines, lands classified as transition
include lands currently having urban services and other lands necessary to
accommodate the urban population and economic grovith anticipated within the
planning jurisdiction over the next ten years.

As shown on the Land Classification Map, two areas have been designated as
transition (South Mills (west) and Camden (west)).

This means that these two areas are especially targeted for public investment
should the County undertake such planning or conduct grantsmanship for such
purposes. In other words, they are priority for water, sewer, streets, and
other development.

In accordance with the population projections showing limited future demand
in the planning decade, these areas are designated "transition" as an inducement
for future growth, rather than a limitation upon its density and nature.

C. Community.

The purpose of designating areas in a community class is to provide for
clustered land development to help meet housing, shopping, employment, and
public service needs within the rural areas of the planning district. As
outlined in the CAMA guidelines, such areas usually refer to small clusters
of rural development not requiring municipal sewer service and clusters
which usually occur at cross-roads.

As seen on the Land Classification Map, the areas of Camden (east)-Belcross,
Shiloh, and Old Trap are designated as "Community". As such, they represent
the essence of the County's foremost development pattern policy, that of clustering
development where it has traditionally been.

D. Rural.

The purpose of the rural class, as defined by CAMA, is to provide for-.agriculture, and
forest management, mineral extractions and other low intensity uses.
As reflected in the foregoin.9 policy section (II),.Camden has resource
concentrations of agricultural, forestation, and minerals (sand, gravel, and peat)
.,h4ch are developable or potentially so.

For CamdenPoint Shores, Whitehall Shores, Taylor's Beach, and Te@xaco Beach
the modified category' of "rural-residential" has been designated by the
County Commissioners to reflect that it should develop significantly slower
and not in a mixed land use pattern as should Old Trap, Shiloh, and Camden
East-Belcross. This is differentiated from the 1976.Land Classification Map.

Through the use of this modified category, the Commissioners wish to emphasize
further, for Camden Point Shores, that this area, regardless of the fact that
it is already platted and much of it is sold, should develop at "low intensity','
1jurban services are not to be required, and the natural resources are not to
be permanently impaired" (15 NCAC 7H, pp. 7-14).

E. Conservation.

The purpose of the conservation class is to provide for effective long term
management of significant limited or irreplaceable areas. This management
is necessary in the County along the estuarine shorelines of the Pasquotank
and North Rivers and in all surface waters. As shown on the Land Classification
Map, this designation is interrupted near the residential (rural-residential)
areas of Whitehall Shores, Taylor's Beach, and Texaco Beach. The County Board
of Commissioners wish that these already developed areas be monitored closely
so as to protect the fragile nature of the,estuarine waters and shoreline. In
this regard, the foregoi,ng policies show that these areas should not be
identified as transition lands in the future.

IV. INFORMATION BASE FOR POLICY DISCUSSION.

The following section presents in more detail the information which
the policy issue summaries were developed and upon which the policy discussion
with the Camden County Bo&rd of Commissioners was based. It first describes
the manner in which the information base was established, and then presents
data and conclusions regarding present conditions and economy; existing
land use; current plans, policies and regulations; constraints to development
including land suitability and capacity of community facilities; and estimate@
demand.

A. Establishment of the Information Base.

1 . Manner of Data Assembly and Conclusions.

Data for the Camden County Land Use Plan was collected through a'corn.,bined
effort of the Communities, the county's residents, and PlannTng and Design
Associates, P.A., the County's consultant. This section outlines the general
methods of collection, with details discussed under the headings below.

Data assembly began with an assessment of the County's ordinances, special
studies regarding water and-wastewater systems, and minutes of County
Commissioner's meetings regarding planning issues. The County's previous
and current land use plans, plus other special studies (housing element,
soils study, and state plans) were reviewed for pertinent information about
the County. Interviews with local employees provided information about the
County's budget and its history.

The consultants made several data collection trips to state and federal
government offices in Elizabeth City, Washington, N.C., and Raleigh to
obtain published data. Additional information was collected through
interviews and phone calls with officials at every level.

Since much of the information was not published or readily accessible, the
County Commissioners chose to conduct a citizen survey (presented in the
Appendix), which not only provided data but also became a critical element
;n the citizen participation process. A random sample of the County's
tax records provided addresses for residents of the County. The County's in-kind
match was spent on this effort both in postage and in hours of time contributed
in responding and assessing the questionnaire., Support of area citizens
through responding to the survey made data collection a fundamental building
block for continued participation in the process and implementation of
the finished product.

Information regarding existing land use, housing conditions, fragile areas
and hazard areas was collected through windshield surveys by the consultants
and students from the Department of City and Regional Planning at Chapel Hill.
Aerial photos, topographic maps and the maps prepared for the 1976 Land Use
Plan served as bases to begin work. All maps in the current plan were constructed
anew to provide more accurate information regarding fragile areas, hazard
areas, and existing land use.

Conclusion: For Camden County, like other very small communities, much
of the information required by the CAMA guidelines for Land Use Planning is
not published. This necessitates considerable primary data collection in the
form of interviews and on-site surveys. While these are desirable, and granted
they contribute to the participatory process, the small budgets allotted to small
places are seldom adequate to support such research.

B Population and Economy.

1. Population.

According to the Advance Counts from the 1980 Census, Camden County has a
population of 5,829, 67.5% of whom are white and 32.5% are non-white.
The state of North-Carolina is 75.8'/10 white and 24.2% non-white.

Camden County grew 6.9% between 1970 and 1980, while the state grew 15.5%.
Camden's pattern represents a reversal of the slight population decrease
.(0.4%) since 1900. This trend reflects the change from 11.95% outmigration
in the 1960's to 2.74% inmigration in the 1970's.
The table.below shows the fluctuatinyatterns in PoDulation of the Countv since
1900. Presumably, these peaks and va eys are due to major world events'
rel-ated to naval and other industrial employment, World War I, World 'Aar
II and the subsequent baby-boom, outmigration of youth in the 1960's. and
reversal of outmigration in the 1970's as people over 45 returned to smaller
communities to live.

POPULATION OF CAMDEN COUNTY
1900-1980

5900

5800 5829

5700
5600 5640
5500 5598
5400 5474 -1461 5441 5453
5300 5382 5223
5200

5100

5000

100 110 120 '30 '40 150 '60 '70 .180

1900-1970 Population Estimates
Source: 1*980 U.S. Bureau of the Census, Advance Counts.
14

As noted in the 1976 Land Use Plan, there is no appreciable influx of seasonal
population in Camden County. The number of summer residents in recreational
homes has not been estimated.

As shown below, the population is distributed almost evenl among the
County's threE- Townships. South Mills is traditionally a M larger. In
the 1960's, there was a small shift from South Mills and Shiloh tn Courthouse.
This shift continued into the 1970's, when the population of Courthouse
Township grew 10.7%; South Mills grew 7.1%; and Shiloh grew 1.0%.

POPULATION BY TU64NSHIP
1950-1980

South Mills
1950 1,904 736.5%)
1960 2.015 3 6. 0 0/0')
1970 1,929 (35.4%)
1980 2,066 35.40/0')

Courthouse
1950 1,685 (32.2%)
1960 1,858 (33.2%)
1970 1,848 (33.9%)
1980 2,046 (35.1%)

Shiloh
1950 1,634 (31.3%)
1960 1,725 (30.8%)
1970 1,676 (30.7%)
1980 1,717 (29.5%)

Total County Population: 1950 - 5,223, 1960 - 5,598, 1970 5,453, 1980 5,829
Source: 1950-70 US Bureau of Census
1980 Demographic Research, Division of State
Budget and Management
NC Dept. of Administration
Prepared: May, 1980

This population is classified as 100% rural, since Camden has no incorporated
places. In fact, in 1977, there were only four (4) other counties in the state
more sparsely populated (Statistical Abstract, Fourth Edition, 1979, p. 13).

In 1970 92"', of Camden's population was classified as rural non-farm and
8% as farm. Presumably, with the shift from the farming township of Shiloh
to the less farming township of Courthouse, the population is slightly more
non-farm today. Forthcoming Census counts will test this assumption. The
non-farm distribution of the population in 1970 represented a dramatic shift
to non-farm (+22.5/'10) and a dramatic loss of farm population (-711/0) since
1960. (Stat. Abst-, p. 15).

In 1970 the population averaged 3.4 persons per household and was evenly
spread throughout the County (South Mills, 3.4; Courthouse, 3.5; and Shiloh, 3.2).
During the 1970's, household size declined by 12% countywide, from 3.4 to
3.0 persons. Similarly, the family size was slightly reduced in other townships.
In Shiloh it was below 3 persons per unit (2.98).

Between 1960 and 1970, the number of white households increased 16.7%,
while the non-white households dropped by 3.6%. As in the rest of North Carolina,
the average household size for both groups dropped. Nevertheless, the average
household size in Camden County was larger for non-whites (4.4 vs. 3.9 for
the state) and smaller for whites (3.0 vs. 3.1 for the state).

Planning Region R households increased from 25,610 (1960) to 28,786 (1970)
to 50,477 in 1980. Most of this has occurred among the white population
(17.10/6' more during 1970-80 than non-white). The Region R increase in
households was 21.1% greater than that of Camden County during the past decade.

As shown below, Camden County has sustained increases in all
population groups over age 15 since 1960. During this period the downward
trend in the 35 to 49 age group reversed, but the downward trend in the
0 `-o 14 age group continued. Camden has -I-e%qer childrel'i today than in 1950.
Between 1970 and 1980 the 15 to 24 age group increased more than any other.

CAMDEN COUNTY AGE DISTRIBUTION: 1950-1980
1950 1960 1970 1980

0-14 1,740 (33.3%) 2,002 (35.8%) 1,706 (31.3%) 1,399 (23.9%)
15-24 793 (15.2%) 782 (14.0%) 850 (15.6%) 1,805 (18.5%)
25-34 686 (13.1%) 595 (10.6%) 592 (10.9%) 804 (13.7%)
35-49 918 (17.6%') 950 (17.0%) 875 (16.0%) 959 (16.4%)
50-64 699 (13.4%) 781 (14.0%) 844 ( 15. 5010 910 (15.5%)
65 + 381 ( 7.3% 488 ( 8.7%) 586 (10.7%) 698 (11.9%)
TOTAL 5,223 (1000/10) 5,598 (100%) 5,453 (100%) *5,855 (100%)
Source: U.S. Bureau.of the Census (1950 - 1970)
*State of North Carolina, Office of State Budget and Management, (1980).

2. Economy.

The economy of Camden County involves a variety of factors: employment,
income, and production. This analysis looks at Camden County's economy
from three perspectives:
Sector Analysis-- The economy of Camden has been divided into
seven sectors. This analysis will examine each sector and
the trends that have developed in each sector from 1973 to 1978.

Work Force (Employment)-. The current employment situation is
examined along with the-developing trend in the 1973 to 1978 period.
Income-- Per capita income and overall income trends are reviewed.

a. Sector Analysis

For this analysis the Camden County economy has been divided into seven sectors:

Commuters (residents commuting outside of Camden County for work), farmers,
non-farm/non-manufacturing, manufacturing located in County, government
employment, government transfer payments and rent, interest dividends.

(1) Commuters.

The dominant income producing sector of the Camden County economy is the
Camden residents that work outside of the County. These commuting workers
account for 65% of all the wage and salary disbursements acquired by Camden
County residents and 36.92% of the total income in the County. More than
90% of the workers are employed in Pasquotank County, North Carolina and
Norfolk,Virginia. This commuting labor force is Camden County's leading
export. Commuting workers' gross income in 1973 was in excess of $7.7 million
and increased to over $11.7 million in 1978, a 52% increase. Forty-two (42)
percent of the Camden County labor force commutes to adjacent counties to work.

(2) Farmers.
Farming has historically been one of the primary contributors to the Camden
economy. Land used in crop production has increased from 37,782 acres in
1974 to 46,801 in 1978, 9,019 acres (14.09 square miles) in only four years.
In. the latter year, land used in crops represented 30% of the total land
are a in Camden County.
1-1hile farming has always been a leading export item, its income production
cannot match that of the communtihg labor force. In 1973 and 1974, farm
income reached an all-time high. This was primarily due to the extensive
grain shipments to the Soviet Union from the United States.

COMMUTING PATTERN 1970 63
CAMDEN COUNTY

Gate 6 Tidewater, Virginia
346

Perqui.mans 21
Currituck 35

Pasquotank 583

Curriturk
21

Dare 5
A,

p- Pasquotank87

Source: Camden County Land Use Plan:
1975-1985

According to U.S. Census estimates, both the market value of farm products
and the actual farm income decreased between 1974 and 1978. Personal income
from farming dropped from $7,115,00.0 to $3,715,000, at a time when the acreage
in crop production increased 24%. Market value of crops, including forestry
products, decreased less, $15.2 million to $14.6 million. Overall, farm
income declined in its share of total.Camden County income. In 1973 it
represented 27.8%; by 1978, it had dropped to 11.7%.*

(3) Non-Farm/Non-Manufacturing.

*Non-farm/non-manufacturing -employment** and income increased dramatically
during the five year period from 1973 to 1978. Total income produced in this
sector increased by 73.9% from $2,591,000 to $4,507,000 in 1978. Proprietors'
income increased from $1,185,000 to $1,389,000,and the non-farTning/non-manufacturing
laborers ' income increased from $1,406,000 to $3,118,000. This sector also
gained 139 new proprietors and 123 additional employees. The most notable
increases in employment were in the retail trades, which more than doubled
from just 60 employees in 1973 to 130 in 1978. The construction of a new
shopping center was a primary factor in the increase. Retail sales also
increased during this period. For the nine-year period from 1970 to 1979,
retail sales in Camden County increased from just over $3 million in 1970
to in excess of $10 million in 1979.

(4) Manufacturing.

There are no major industrial employers in Camden County; it has only a few
small forest-related firms. Employment in these industries has fluctuated
from 40 to 60 persons for the past several years. Present employment is 50.

(5) Government Employment.

State, local, and federal government employees account for essentially the
same proportion of the County's income in 1978 as they did in 1973. The
total number of jobs in this sector has increased from 260 to 290. This
increased employment has come entirely from state and local government
employment as federal employment has decreased.

The total amount of county income contributed by this s ector has increased
from $1,652,000 in 1973 to $2,508,000 in 1978, a 51.8% increase.

*U.S. Bureau of the Census, Regional Economic Information System, Bureau
of Economic Analysis, April 1980.
**North Carolina Department OfCommerce, Camden County Population and Labor
Management Relations Profile, 1970 - 1978.

(6) Government Transfer Payment.

Government transfer payment includes Social Security payments, Welfare payments,
Veteran's Benefits, and a variety of other income financed by federal, state,
and local grants. This sector made the second highest gain in income produced
of any in Camden County. Government transfer payments contributed S2,429,000
in 1973. By 1978, its contributions had increased to $5,200,000, a 114/10 increase,
making transfer payments the largest single contributor to County income. The
increase reflects the general aging of the County's population, as more and
more persons become eligible for Social Security income. It is also an indication
of greater dependence of certain population segments on various government
social welfare programs.

(7) Rent, Interest, and Dividends.

The rent, interest, and dividend sector has shown the greatest rate of income
increase of any sector of the economy. Income produced by this sector has
increased 123%' in the five year period from 197.3 to 1978. The actual contribution
of this sector is difficult to assess. This income represents earning on
assets accumulated through production in a different period and does not
represent actual goods and services now being produced in Camden County.
The use and location of this available capital has not been determined.

b. Work Force.

The total work force in Camden County has not changed significantly in ten
years. The total work force in 1970 was 2,130 persons. The October 1980
estimate indicates a work force of 2,330 persons, a 2.00 person (or 9.3%)
increase in the labor force.

As has been noted before in this report, 42% of the workers commute outside
of Camden County for employment. The five-year unemployment rate average
has been 4.9%; the rate as of October 1980 was 8.6% (or 200 persons out of
work).

Camden County has a substantial work force participation rate; 56.9%, of all
persons over 14 years of age in Camden County are actively employed or seeking
employment. The most critical problem for the Camden County work force is its
inaccessibility to high paying labor employment and the lack of necessary f
skills to obtain higher paying employment. The North Carolina Department o
Commerce estimates that more than 55% of the County's work force is under-
employed. The lack of highly skilled employment opportunities within the County,
or even closely accessible to the County, encourages the County workers who do
acquire the necessary skills to migrate to areas,that offer more favorable
employment opportunities.

c. Income.

The per capita income in Camden County has consistently lagged behind the state
and the nation. In 1976 the per capita income of Camden County was just
$4,677, 15% below the state per capita income of $5,478 and 27% behind the
national per capita income of $6,403. Average hourly earnings of production
workers in Camden County averaged only $2.90 per hour in 1977, 36% below
the state hourly average of $4.47. In 1977 59.41 of persons or families
'0
filing tax returns made $8,000 or less. Thp total county income in Camden
County increased from $22,550,000 in 1973 to $31,839,000 in 1978. This
increase represents a 7% annual increase in total County income while the cost
of living index was increasing at a 9.5% annual rate. The total county income
for Camden County when adjusted for inflation is actually less in 1978 than
it was in 1973. 'The Camden'County total increase in the five years from 1973
to 1978 was 41.2% while the state total income increase was 61.2%. Camden
County's income increase is 48% below that of the state.

3. Major Conclusions.

Analysis of the population and economy in Camden County reveals several
trends and linkages which are important for future land use decisions.

The County's population fluctuations have been tied historically to external
economic events. A relatively limited local employment base makes it necessary
for.a large portion of the county population (15-34 years old) to leave the
County daily for jobs. This dependent migration pattern hurts the tax base
of the county and presents unpredictable demand for those who might be interested
in local commercial development.

Sectors in the County's economy, like its population, have shown considerable
changes over the past few decades. Agriculture has declined in relative
position, while non-farm sectors have risen. So far, these trends have
offset each other interms of income, largely because of the commuter sector
mentioned above. A larger portion of the population is non-farm than 10 years
ago, and the farm population is older than ever before. Thus, the trend in
sector shift is likely to continue as the farm sector fails to replenish itself.

In light of these shifts, improvements should be made to diversify and
expand the economic base of the County. As noted in the policy section above
(Section II), resources with potential for production (agriculture, forestry,
mining, and parks /recreational areas) offer opportunities for diversifying
the economic base, strengthening employment, and reducing the number of
commuter workers. Through strategic approaches toward using these resources
while protecting the environment, the County's ability to serve an increasing
demand for human services and to offer a stronger commitment toward attracting
appropriate development can be improved.

C. Existing Land Use.

1. Description.

The following composite 1981 Camden County Existing Land Use Map and the
eleven quadrant maps that detail it show that much of the County is covered
with wooded swamp, forest and agricultural land. This section describes that
acreage as documented in the Profile of North Carolina Counties, 1980 or
as verified by analysis of these maps.

Forest claims most of the land, 107.3 of 152..5 square miles,(70%).
Almost half of the land is wooded swamp. Half of the land is flood-prone,
according to the N.C. flood insurance maps. Forty-one percent of the land
is privately-owned forest (62.9 square miles).

A quarter of the land (39 square miles) is in cropland or pasture.
About 57/10 of the land (55,480 acres or 86.7 square miles) is in
farms. The average farm is 334 acres.
Total acreage'in cropland, pastures and farms means that 83% of the
land is in agriculture.
Camden County -includes an additional 49.9 square miles of water,
which is 25% of the total County area.
Dismal Swamp State Park is 14% of the County area (44.7 square miles).

The implications of this land use distribution become clear as we turn to
a detailed examination of the Camden County landscape.

MCBMENTIAL A 00VIENNUX"T
00*016111CIAL 46 CHURCH
X INDUSTRY I"T"M WOOM SWAMP
WATER AfRICULTUOtt
P9X9ST

For detail, see
quad maps, pages
69 79.

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44,
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EXISTING LAM USE
CAMDEN COUNTY COMPOSITE MAP

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a. Residential Land Use.

Residential land use is predominantly year-round housing, with some recreational
or river-front units in Camden Point Shores, which has 483 lots, and White
Hall Shores, which has 380 lots. Houses have been or are being built on about
7010' of these lots.

As shown on the County man of existing land use, page 68, most of the
residential development outside these subdivisions is located,
along the paved state secondary road system throughout the County.

As noted in the foregoing discussion of population, the number of housing
units increased from 1,747 in 1970 to 2,148 in 1980, an increase of 23.0%,
according to the Advance Census counts for 1980.

According to the Preliminary 1980 Census, which provided a more detailed
breakdown for 2,116 housing units, the rate of increase in housing units out-
paced the increase in total population in each township. This, together with
a drop in family size,indicates that a considerable amount of development
involves only 5% of tne overall population of the County.

This pattern is.shown on the quadrant maps, pp.69 - 79 , which visually present
increased activity in residential land use when compared to the 1976 maps
of the same areas.

RESIDENTIAL DEVELOPMENT

Component Parts Housing Units
Vacancy 1970 % House Change
Total Vacant Rate Total 1970 - 1980

Camden. County 2,116 205 9.8 1,747 21.1
Court House Township 727 57 7.9 570 27.5
ED 0101 475 35 7.4 --- ----
ED 0102 252 22 8.8 --- ----
Shiloh Township 663 88 13.4 569 16.5
ED 0100T 338 47 14.0
ED DION 325 41 12.7 ----
South Mills Township 726 60 8.3 608 18.4
ED 0103 390 39 10.0 ---
ED 0104 336 21 6.3 --- ----

As shown.above, the 1980 County vacancy rate (9.8%) is considerab ly higher
than that for an optimal housing market (50/10).

Consistent with the pattern of population shift from Shiloh to Courthouse
Township, Shiloh has the highest vacancy rate in the County and Courthouse
the lowest. It was noticed that in the previous decade additions to
Courthouse housing were slightly larger than in other townships.

During the 1970's, Courthouse showed the highest population change, had the
largest family size, and experienced the lowest vacancy rate; clearly Courthouse
was the focus of residential activity. Similarly, Shiloh had the least such
land use activity.

According to the 1970 Census and the 1978 Camden County Housing Element,
92.1% of the housing units were year-round units and single-unit structures,
leaving an estimated 7.9110 in multi-family units. 74/10 were owner occupied;
32.81/0 lacked some or all plumbing; 12% were overcrowded. The housing stock
was valued at only $8,276 (med-i.an value per unit) with median gross rent of
$57 per month.

In's noted above, the 1980 Final Census count shows 2,148 housing units in Camden
County. The Land Use Plan update in February, 1981 included a thorough wind-
shield survey. Although it did not count as many houses as the U.S. Census, it
did reveal a marked pattern in the quality of housing in the county. The table
below shows the percentage of houses by condition, as applied to the total count
of units by the Census.

OCCUPIED UNITS (1,943)

Condition Percent Number

standard 5 1 . 5 0/0' 1,001

Substandard ( in need of repairs 27.6% '537
costing less than $1,500)

Substandard (in need of repairs 16.4% 318
costing $1,500 to $15,000)
Dilapidated (worthy of demo- 4.5% 87
lition and replacement)

VACANT UNITS (205)

Habitable 40.0% 82

Dilapidated 60.0% 123

YEAR-ROUND MOBILE HOMES (220)

Standard 48.6% 107

Substandard (repairs 36.8% 81
less than $1,500)

Substandard (repairs 13.6% 30
$1,500 to $15,000)

Dilapidate'd 0.9% 2

Thus, the survey revealed that only 20.9% of the housing stock (occupied)
is seriously substandard or dilapidated. This rate is consistent with 1981
data recently taken from the North Carolina Department of Human Resources.

b. Commercial Land Use.

Since the 1976 Land Use Plan was written, a nevi shopping center has been added
to Camden community at the intersection of Hwy 158 and the railroad.

This has reinforced the "cluster" pattern of development advocated in that
Plan and has prepared the local community to better deal with increasing
costs of transportation to Elizabeth City and Norfolk for basic needs.

Otherwise, commercial land use has not changed significantly since the 1976
Plan. The 1981 quadrant maps show continued concentration at local crossroads
where residential development is more dense, particularly in the South Mills
area and along US Highway 158 from the Elizabeth- City Bridge to Belcross.

As indicated in the 1981 survey of existing land use, the County has 27 commercial
establishments, covering a wide variety of types . Combined responses from
the 1980 citizens survey show that 36% feel that there is a moderate to serious
shortage of commercial development; 16% state that this was a slight problem;
and 46% stated that if there was a shortage, it was not significant.
The Profile of North Carolina Counties (6th edition, 1980) shows that only
1.9 square miles (1.2%) of tFe land area is,"urban and built-up". The 1981
land use and housing surveys indicate that approximately 1.5% of this area is
commercial, with 98.5% being residential or agricultural in nature.

c. Cultural and Institutional.

As shown on the Land Use Quadrant Map (page 69 )., a considerable amount of
land is used for cultural purposes in the form of churches at country crossroads
and cemeteries throughout the County.

Institutional land use in Camden County takes the form of schools and administrative
buildings and State government office buildings located in the Camden Community
(See Quad Map "Elizabeth -city, Sw page 73

In 1967, 245 acres were designated as federal land, representing only 0.25%
of the County's total land area. Like the other cultural and institutional
uses enumerated above, federally owned lands contribute nothing to the local
tax base, making it more difficult for the County to commit strongly to
services in support of development.

Many of the cultural resources of the County have potential as historically
significant structures and sites. The North Carolina Department of Cultural
Resources maintains files on historic resources in each county in the state.
Many of the sites in the Department's files are shown on the 1976 Land Use
Plan, pages 45-50. Others may be identified or added to the Camden County
file by contacting Joanne Williford at the Department (919-733-6545).

The table belaq lists those properties in the County which have not been
nominated but have beeen deemed worthy of further study, and those already
added to the National Register Study List.

National Register-
Caleb Grandy House
Camden County Courthouse
Milford (Relfe-Grice-Sawyer House)
Mullen-Abbot House
Lamb-Ferebee House

Study List:
Great Dismal Swamp
Masonic Lodge

Source: North Carolina Department of Cultural Resources

At the present time, there has been no countywide inventory of historically
and architecturally significant sites. Future possibilities for inventory
work are uncertain because of the elimination of Federal funds for state
survey and planning activites. In addition, Federal funding cuts will
necessarily limit the ability of the Department of Cultural Resources staff
to prepare National Register nominations. Any possible future nominations
in Camden County that are prepared by the Deartment will be chosen according
to a set of nomination priority criteria. Otherwise nominations must origi-nate
from Federal agencies for Federally-owned properties or from private sources.

In addition to historically significant sites and structures, the Department
of Cultural Resources has provided the following pace 84 which shows the
distribution of the only known archaeological sites in Camden County -- those
in the Joyce Creek Watershed. As noted by Nancy A. MacKenzie, Archae6logical
Technician (4/81), Camden County has never been systematically surveyed by
an archaeologist to locate other sites and their significance. Therefore,
there is a high probability that unknown archaeological resources are present,
this potential should be taken into consideration during the implementation
of this Land Use Plan.

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4.3

ARCHAEOLOGICAL SITES IN
THE JOYCE CREEK WATERSHED
CAMDEN COUNTY NC

MILES

KILOMETERS

Site distribution in the Joyce Creek Watershed.
Source: Survey Report
by Dr. David Phelps (Ecu)
1976

85
d Recreational Land Use.

In 1976, the multi-county region from Gates, Chowan, Washington, and Hyde
eastward has 6.06 acres per capita for recreation (1976)*, to North Carolina's
0.66. Camden features 28,204 acres.designated as a Class III State Park
the Dismal SwamD State Park. This means that over 13.9% of the Count 's
202.432 area is designated state park, providing the area itit %sis
h an emp
on providing a quality natural env i ronmen t-- "(Such) areas are usually
developed to an extent that only 5% to 10% of the surface area is for intensive
human use with the remainder being maintained in a natural state."** This
area.offers weekend and vacation activities dependent on a natural setting
such as native study sightseeing, hunting and fishing, light facility development,
access, trails and campsites.

Currently, there are no public, i.e. County owned, recreational facilities
in Camden County.

NC Dept of NRCD,,Division of Parks and Recreation, NC Outdoor Recreation
Area Inventory, NC Department of Administration, Div. of State Budget and
Management, 1976 Population Estimates in Statistical Abstract, 1979, P. 189.
statistical Abstract, p. 190.

86
1 2 3 4W1164
CAMDEN COUNTY

PUBLICLY OWNED FORESTS AND PARKS

IIN *%
31

Publicly Cwned Forests and Parks

Two areas have been identified as shown on the Forests and Parks Map.

The Dismal Swamp State Park is located along both the Dismal Swamp

Canal and the Camden County-Virginia State line. The second forest

area is located on the eastern Camden County line. This area extends
into Cuirrit-uck County.
Source: Camden County Land 'Use Plian: 1975-1985

e Agricultural and Forest Lands.

As seen on the Land Use Maps, cropl.and and pastures make up 39 square miles,
or 25% of the County's land area. An additional 107.3 square miles (70%) are
covered by wooded swamps and forests.

Agriculture continues to be a major land use in the County, growing from
51,925 acres in 1974 to 55,480 acres in 1978, an increase of 6.89%.

The 1978 Preliminary Census of Agriculture for the County summarizes other
trends of agricultural land use between 1974 and 1978:

a 10.7/,0' increase in the total number of farms (from 150 to 166);
a 6.8% increase in the total acreage of land in farms, as noted above;
a decrease in the average farm size (from 346 acres to 334);
a 66% increase in the average value of farms in the County (from S171,780
to $285,377);
a 70% increase in the average value of farmland (from $496/acre to
$844/acre);
134 of the 166 farms (80.7%0) were owned by individuals or families;
64 farms (38.5%) were operated by full owners; 61 (36.7%) by part owners,
and 24.6% of tenants;
'the number of farms in harvested cropland has increased 14.3% while
cropland used only for pasture has declined 25%/. Farms with "other
cropland" increased 30% between 1974 and 1978, indicating that many
farms are not actively being harvested;
Livestock farming showed the following trends. Cattle and calf farm
declined from 30 in 1974 to 19 in 1978. Hog and pig farms increased
from 48 to 57 in the same period.

As these data convey, the conversion rate of agricultural lands to non-agri cultural
uses has been limited over the four year period. Conversely, the rate of change
of land to agricultural use has grown moderately.

As shown on the Existing Land Use Composite Map, the agricultural land in the
county is inland from the wetter soils around the periphery of the County.
In fact, agricultural land users compete-for the areas which are also better
suited for commercial and residential uses. This was an issue in the citizen's
survey, since 30% of the respondents stated that conversion of forested land
to agricultural uses was of moderate or serious concern to them; 15.6% stated
that it was a slight concern; 54.61%, over half the respondents, stated that
this conversion was not a problem in Camden County. This conversion is
discussed in the policy section regarding types of land use patterns desired,
pages 41 - 43

Ahead of agriculture in total acreage covered is the County's forested area,
which makes up 53% of Camden County, as shown on the Land Use Maps. The bulk
falls into the wooded swamp category, with the remainder in forests.

As shown on the Fragile Areas Map, page 8 nearly 40% of the County's land
area is covered by wooded swamp. Wooded swamps are part of the wetland family
which also includes marshes, mudflats, and non-wooded swamps. As wetlands,
wooded swamps are where the water table is at, near, or above the land surface
for a significant portion of most years.

As indicated in the poli cy section regarding other hazard or fragile areas,
page 22 , wooded swamps are valuable to the County because they slow down the
rate of water run-off from developed areas, thereby reducing erosion; trap
nutrients which provide feedingigrounds for fish and other water species;
provide a habitat for black 'bear and other wildlife; and act as a buffer
between developed areas and designated Areas of Environmental Concern, such
as estuarine shorelines. Additionally, by retaining moisture, they contribute
to the important component of total annual soil moisture necessary for
crop production in the County.

Wetlands are dominated by wooded vegetation, primar ily cypress, tupelo, oaks,
and red maple. Shrub swamp vegetation includes alder, willow and button-bush.

Forest land, in contrast to wooded swamps, has a tree-crown areal density of
10% or more, is stocked with trees capable of producing timber or other wood
@roducts, and exerts an influence on the climate or water regime. This category
includes lands on which there are rotation cycles of clearcutting and block-
planting, in addition to forest land which is grazed extensively. The forest
land category contains deciduous trees such as oak, maple, hickory and aspen,
in addition to evergreens among which are various pines, hemlock, and spruces.

Lumber and pulp-wood operations have not been extensi-ve fn the past, although
corporate holdings of forest land are found in the northern part of the County,
where drainage of swamps for commercial forestation has occurred. The 1980
citizen's survey indicated that swamp drainage was considered a very impoftant
issue by residents.

The 1978 Census of Agriculture preliminary report notes that woodland, including
woodland pasture,decreased from 8,940 acres in 1974 to 7,420 in 1978. The
number of farms in woodland areas increased, however, from 57 to 61 during
that time, indicating smaller farms with wooded pastureland.

As shown by a comparison of the Land Use Map with the General Soils Map,
forested areas are inland away from the soils with a high water table.
Like agricultural uses, the forests compete with the economic and community
d.evelopment (urban) uses for the prime land in Camden County.

2. Analysis of Existing Land Use.

a.' Significant Land Use Compatibility Problems.

Incompatible land uses exist where human activities negatively affect other human
activities, the natural environment, and property values. Some incompatibilities
are immediately noticeable, such as smoke and smells in a residential area
which come from a nearby industrial plant. Other incompatibilities develop
gradually and are not immediately noticeable, such as the slow sedimentation
of a stream by silt from adjacent farmland.

In Camden County, as elsewhere, the determination of whether adjacent land uses
are incompatible is often a judgement based not only upon available data,
but also upon the values of the group or person making the decision. In other
cases, various laws and regulations, such as those enforced by State Department
of Health and by local zoning and subdivision regulations, define,
in the public's interest, when violations (i.e. incompatibilities) arise.

As noted in the 19.76 Land Use Plan, many land use compatibility problems,
for the most part, have been avoided in the County. The County is rural with
low development pressures, and industrial and commercial activity is very limited.
On the other hand, situations do exist which could lead to significant problems
in the future.

As shown on the Land Use Incompatibilities Map, page 91, these potential
problem areas occur in several categories. First are instances in which
agricultural or community facilities encroach on wooded swamps and other
fragile or hazard areas. Currently, there is potential for problems to arise
in wooded swamps, wetlands, and groundwater supplies, resulting from agricultural
practices, the high watertable of the landfill, and unauthorized open dumps
(see Hazard Areas Map as well , page 15 ). Runoff from these sites could
upset ecological and hydrologic balances including sedimentation and chemical
pollution of surface waters as well as groundwaters.

In some cases, agricultural uses exist extremely close to residences or
community facilities. The location of a grain storage facility next to
the high school has been cited by the State as a safety matter. This storage
facility.does cause dust problems and some traffic problems at the high school.

A second category exists where residential development occurs in areas which
face serious soil suitability problems (foundation stability, septic absorption,
etc.) and where other ecological functions may be endangered. As noted in
the 1976 Land Use Plan, one such area is the Camden Point Shores Area. This
is a second-home development that began in 1966 in an area with a very high
water table and otherwise unsuitable soil, covered with wooded swamp. Although
extensive drainage has been attempted, there is still considerable potential
for future problems if the area continues to develop with septic tanks.
The issue of incompatibility of land use mixes in this area was heightened.
when developers began operating commercial (albeit agricultural) greenhouses
in the ostensibly residential area. Based upon field analysis, continued
development of the 483 lots which have been platted on the 5,000 acre site will
undoubtedly increase the probability of damage to the area and its ecology.
This problem is addressed in the 'Land Classification section, part III, page 53 -

A third category of incompatibility exists along US 158 near the Pasquotank
River. Review of the Elizabeth City. NVI quad map, page 74 and the Fragile
Areas Map,.page 8 reveals why the development of the marshes along the Causeway
has been a sensitive situation for many years. Further strip development of
this area could.destroy the unique and beautiful vistas of the river and
adjacent marshes, as well as damage the estuary.

A final category is exemplified by the new construction of US 17 through
the South Mills community. Completion will mean that this community, like
many others, will be by-passed by potential commercial development opportunities.
Over the next 5-to 10 years, this may become critical, since there'is limited
access to the community.from the highway, particularly from the north.

Recognition of such instances can give the County Commissioners some
indication of potential problems, as well as an idea of what mixtures of
land uses they should monitor in the future. Toward that end, the
following list of incompatible land uses and problems from planned and
unplanned development is keyed to the aforementioned map for easy
recognition. Some uses may be added or removed during the continuing
implementation process of this plan.

(Numbers refer to locations on the following map, page 91)
.1. Residential subdivision and canal dredging encroaching on wooded swamp;
. commercial greenhouses in residential area
2. Hog parlor near residence
3. Hog parlor near residence
4. County landfill encroaching on wooded swamp in close proximity to
residences
5. Hog parlor near residences
6. Residential subdivision encroaching on tidal wetlands and an erodin.g
shoreline
7. Commercial strip along US 158 conflicting with scenic values and wooded
swamp
8. Agricultural clearing encroaching on wooded swamp
9. Asphalt plant near residences
10. Open dump near residences and encroaching on wooded swamp
11. Agricultural grain or chemical storage near residence
12. Massive agricultural clearing encroaching on wooded swamp
13. Potential for strip development encroaching on wooded swamp
14. US 17 project consuming farmland and bypassing businesses in South
Mills; limiting access to US 17
15. Oil storage facilities near residences
16. Residential development encroaching on wooded swamp and the Joyce
Creek floodplain
17. Agricultural clearing encroaching on wooded swamp
18. Agricultural and residential development encroaching on wooded swamp
19. Widening of US 17 consuming farmland and wooded swamp
20. Grain storage facility next to high school

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CAMDEN COUNTY 1&7 DEVELOPMENT

b . Major Problems That Have Resulted from Unplanned (and Planned)
Development, and that Have Implications for Future Land Use.

Camden has avoided any major problems for unplanned growth due to the simple
fact that the County is still very rural and has not experienced a great
deal of growth over the years. Also, the County Commissioners are very
aware of some of the problems adjacent counties have had with unplanned growth.

This CAMA Land Use Plan process has developed policies which can be enforced
through the County's zoning ordinance and subdivision regulations toward the
goal of preventing many of -the incompatibilities referenced in the previous
section, though some are clearly out of the control of the County Commissioners.
Particular examples include the continuing, though slowed development of
Camden Point Shores and the construction of Highway 17 North through South
Mills.

There are no "major" or pressing incompatibility issues that will impact the
County greatly in the near future among those identified above. However,
the potential for problems in certain localized areas does warrant well-planned
and deliberate attention by the Board of Commissioners and the local citizenry.

c. Areas Experiencing or Likely to Experience Major Land Use
Changes.

The 1976 Land Use Plan noted that the area around South Mlills might change
during, the ten-year planning period, depending upon the type and amount of
development of the Dismal Swamp State Park and the widening of US 17 through
the South Mills area. Hindsight now shows that, though nothing has been done
about the park and its potential as a recreation area and visitors center,
the US 17 by-pass has changed the landscape of the area. This impact has
certainly just begun.

In addition to this obvious area of projected change, the Camden Development
Advisory Committee anticipates that the increasing cost of gasoline will heighten
the concentration of population near areas already developed, and reinforce
the population shifts now underway from Shiloh to Courthouse Township.
!nterviews with the staff and the board of the South Mills Water Association
indicate that if additional water supply can be obtained and if effective.
demand for the non-profit water system continues at its current pace, the
water system may be extended along Hwy. 343 as far as Shiloh. Even if it
only goes part of the way, it is certain to provide an added stimulus to
development, particularly of commercial and residential uses, along its course.

Besides these long standing communities, Whitehall Shores Taylors' Beach,
and Texaco Beach are likely to grow in residential development because of
Camden's relatively low tax base and its proximity to both Elizabeth City and
the North Carolina Outer Banks.

The Land Classification Map in Section III above, page 54, shows areas which
are anticipated for change in the next five to ten years. Consistent with
the policies which it illustrates, 'the changes increase the "cluster" pattern
already unfolding in Camden County.
Underlying that map is a land development theme, in which the three major
communities become-more different in the next ten years since theywill be
facing different pressures. South Mills, as note , faces the impacts of
the new highway around it. Camden Community will be the focus of population
migration and commercial development, Shiloh will still be the agricultural
heart of the County. Without renewed financing, Camden Point Shores may
return to its natural state.

While these changes are anticipated, population projections outlined above
indicate that without a significant stimulator (such as a locally employing
light industry), the amount of change over the next 10 years amounts to 571
additional people, approximately 191 families (or housing units), or about
19 housing units per year.

At any rate, the preparation of this land use plan has helped enable the
Commissioners to encourage development in these areas of anticipated change
so that it is more in keeping with the desires of the citizens of the County.

d. Areas of Environmental Concern.

As noted in Section II, the AEC's in Camden County are public trust waters,
estuarine waters, estuarine shorelines, and coastal wetlands (salt marshes).
Definitions of these areas, complete with articulated uses to be permitted
@nd.not permitted may be found in that section pages 7 through 13 .. Additional
information may be found in the CAMA regulations, 15 NCAC 7H, Pages 125 - 136.

Although not recognized by the Office of Coastal Management, wooded swamps
are an-area of local environmental importance which are also addressed in
Section 11, page 22.

D. Current Plans, Policies, and Regulations.

This section briefly describes plans, policies and ordinances of Camden County and
some of Elizabeth City which relate to land use issues addressed in this Land Use
Plan Update.

1. Plans.
Land Use Element, Camden County, 1978.
The Land Use Element was prepared.to comr)lement the 1976 CAMA Land Use Plan by
delineating basic issues which had been identified by the Citizen's survey in 1976,
formulating policies to deal with those issues and establishing objectives for
carrying out the policies.

These policies and the objectives designed to implement them would have a substantial
impact on Camden County if carried out. Briefly,.the policies of the Land Use
Element would create a slow orderly.pattern of development in Camden County.
Major development would occur in the areas referred to as communities, where water
service may be available. The policies would encourage light industry, business,
and tourist facilities to expand the tax base. The Land Use Element calls for
active participation by the County in meeting the stated objectives, such as public
acquisition of recreational site(s), location of suitable property for business and
industrial uses and promotion of these sites. However, the policies also encouraqe
the conservation of historic sites and the preservation of agricultural and timber
land through control of growth.

CAMA Land Use Plan, 1975-1985.
The initial Land Use Plan for Camden County, North Carolina was prepared under the
Coastal Area Management Act in 1976 with assistance from the Department of Natural
Resources and Community Devel.opment (then DNER). The Plan described existing conditions
and patterns of land use, identified constraints on land development, estimated
future demands, and provided a plan for development based upon a Land Classification
system. Particular attention was given to environmental factors, especially fragile
areas and potential areas of environmental concern. Also, major emphasis was
placed on the role of public participation in the plan-making process.

The 1976 Camden County Land Use Plan Update provided valuable information for this
1981 Update.

Emergency Management Hurricane Evacuation Plan, 1980.
This plan provides for an orderly and coordinated evacuation of residents and
visitors in Camden County. It designates the Chairman of the county commissioners
as director and controller of all hurricane operations including decisions to institute
county-wide increased readiness conditions and other actions. The plan outlines the
steps of alerting officials, actual evacuation, sheltering, mass caring and re-entry.
The Camden County High School, Grandy Elementary School, and Camden Middle School
are designated as Hurricane Evacuation shelters, with Routes 17, 343, 158, and
168 designated as Hurricane Evacuation Routes.

Sketch Development Plan; 1972. 95

The Camden County Sketch Development Plan was prepared by the Camden County
Planning Board in 1972.

The document first identified factors which were expected to influence future
growth in Camden County and then outlined the key eTements or objectives which
should guide County policy. These7int-luded agricultural land preservation,
concentration of-commercial and residential use, development of recreation,
and improvement of roads. It illustrated projected land use patterns,
including certain areas for cluster development.

Dismal Swamp Master Plan, 1974.

The Division of State Parks prepared a Master Plan for the presently undeveloped
Dismal Swamp State Park. The Plan outlines three phases for development.
The First Phase has program emphasis on habitats for endangered mammals with
limited public use. The major need for this phase is access from a public
road. The Second Phase would emphasize Specialized Nature Interpretation Program
and nature study. This phase would involve the development of wildernes's
camping facilities and hiking and interpretative trails. The Third Phase would
expand nature interpretation to include short-term visitors (a few hours).
The purpose would be to educate visitors regarding unique geological and wildlife
characteristics of the swamp. This phase would eventually accommodate
50,000 to 100,000 persons per year or about 400 persons per day.

No time frame for development was indicated in the Plan. The plan was adopted
by the Division of State Parks in 1974, but no active implementation is
presently being done, according to the Division of State Parks. Implementation
of phases one and two would have a small impact on Camden County as the number
of visitors would remain fairly low. Implementation of the Third Phase would
draw a substantial number of visitors to the area and might spawn some
commercial development in the northern portion of the county. This commercial
activity would most likely be in the form of gas stations,convenience stores,
or restaurants.

Housing Element, Camden County, 1978.

The Housing Element summarized the 1970 Census data regarding housing conditions
in Camden County, the status of program to assist persons in obtaining
standard housing, the demand for housing and the need for housing assistance.
The Housing Element goes on to identify specific objectives towards elimination
of substandard housing, encouraging the preservation and upkeep of existing
housing stock, and the preservation of historic sites. Strategies for meeting
housing needs are outlined and relying mainly on public information efforts
regarding programs offered under the Farmers Home Administration and the
HUD Section VIII.

At the present time no major efforts are underway to implement the Housing
Element by adopting building and housing codes. The impact on Camden County
would be significant if adoption of the codes included,provision for the removal
of vacant dilapidated housing which is a safety hazard and devalues neighboring
property. The Housing Element is based upon a very small increase in county
population and contains no provisions for stimulating housing developments
which would attract new residents.

Community Facilities Plans.

Two plans have been prepared pertaining to community facilities. The first
is the Water Resource Management Plan by William F. Freeman Associates (1975)
which inventoried existing water distribution and wastewater collection
and treatment systems for each county in the Region R. It also made recommendations
for future facilities based upon anticipated demand. The plan makes recommendations
on expansion of the South Mills Water Association System. The second plan is
the Water Facilities Feasibility Stu@y prepared by Moore, Gardner and Associates.
This plan also deals with the South Mills Water Association System and
the feasibility of expanding to a county-wide water system with the South Mills
System serving as a base. Moore, Gardner is currently conducting a study
of the feasibility of using.river water to meet current and projected demand.

201 Study, 1977.

The city of Elizabeth-City has joined with Pasquotank County and Camden County
to submit an application for a 201 Facilities Planning Study. This study is
the first phase of a 3-part federal program for the development and implementation of
wastewater facility plans for the area. The boundaries of the study area
were delineated to evaluate important area-wide geographic, demographic and
hydrologic considerations and include portions of Pasquotank County and Camden
County, as well as the entire Elizabeth City Area.
The purpose of the first phase of this study was to evaluate the'wastewater
treatment needs within the study boundary area, including the need for
additional wastewater treatment, problems of infiltration into the existing
sewer collector system in Elizabeth City and suggest the most cost effective
solution to deal with the area-wide need and infiltration problems. A later
phase of the 201 Facilities Planning program will involve implementation
steps to construct the required facilities.

The plan,published in 1977, focuses mostly on Elizabeth City and recommended
that Camden County proceed to deal with its wastewater problems through
individual septic tanks. Caution was expressed that this recommendation be
undertaken in light of the poor soil acceptability in Camden County. It
thus recommended that appropriate (alternative and innovative ) septic systems
be included in any.development of considerable density.

The Elizabeth City Land Use Plan, 1977.

The Land Use issues recognized in the plan which may relate to Camden include:
impact of population and economic trends, provision of adequate housing and
other services, conservation, productive natural resources, protection of
important natural resources, protection of cultura.1 and historic resources,
citizen participation methods. A list of the goals of this-plan include:
promote industrial development; balance economic development with environmental
protection; establish tourists industry; promote projects that aid toward
a more viable community and economic growth; orderly grmqth with environmental
protection; expand recreational opportunities; provide expanded community
facilities and services; and city-county cooperation.

97
The Elizabeth City Open Space and Recreation Plan.
The Open Space and Recreation Plan (Elizabeth City) is a framework through
which the city and other institutions, groups, or individuals, can maintain
a balance between development and resource managment, especially management
of the need for adequacy of recreational facilities. The Open Space and
Recreation Plan is a reference document for providing adequate and improved
opportunities for open space and recreational facilities or activities. Some
of the important concerns drawn from this document relating specifically
to Camden County are as follows:

Camden County, Pasquotank County and the city need improved or expanded
recreational facilities for optimum benefits and economy.

Parks and Recreation for the counties and the city in the area must be a
unified effort with sufficient facilities adequately distributed.

There should be continuity of maintenance and operation effort from one
jurisdiction to another and within different levels of governmental
organization.

Major facilities shoul-d be centrally located within the larger population
centers with safe and adequate access for all residents.

The counties (Pasquotank and Camden) and the city need a combined major park
with diversified facilities.

Existing open space quality of the community should be maintained and improved.
In addition, the existing and potential open space areas, such 'as waterfront
areas, need expansion for public use.
A more detailed recreation ordinance policy should be adopted which formally
spells out expansion of the membership and the function of the recreation
advisory committee to include the city, Pasquotank, Camden, and school
representatives tobetter coordinate recreational programs, activities, and
facilities.

The city should establish a definite Policy toward improving and expanding
recreation opportunities based on several sources including concerns or
reports prepared by Camden County.

The city should develop diversified recreational facilities and activities
throughout the community and area including cooperation with Camden and
Pasquotank counties to develop recreational facilities for county and city
residents, including the major parkwith camping, natural area, beach or
swimming areas, sports fields, and other diversified facilities for both
counties. The city should provide financial aid in developing a county/city
or joint county/city major park facility preferably near the city.

The city and county should consider development of hiking and biking trails
along the Pasquotank River to connect with the Dismal Swamp and Highway 17N.
A Camden River Public Use Quarter Committee should be established by the city
and counties to coordinate activities and seek implementation funding.
Special events should be sponsored by the County. Use of areas of Machelhe
Island (Camden Causeway) for environmental education @nd nature study area:
use of the old oil.tank site for open space and recreation purposes.

2. Policies.

Fiscal Policy Regarding 1979 Re-evaluation.

North Carolina law requires that all counties re-evaluate real property at
least every eight years. For Camden County this was completed in 1979.
For purposes of re-evaluation all cultivated land was grouped into one category
and valued at $1,000 per acre. The current tax rate for Camden County is
$.60 per hundred dollar valuation resulting in a tax of $6 per acre. For
very productive lands this may be considered a reasonable assessment, but
for marginal lands a rather high tax. Two people have taken this
matter to the State Board o@ Assessment, but at this time no action has been
taken by that Board.

High taxes on marginal farm.land tend to encourage conversion of farm land
to more intensive uses, such as housing or possibly, industry. At this time,
it does not appear that there is a large market for subdivision type development
of these cultivated lands, but the taxes might encourage the "hacking" up
of marginal farmland for homesites. This could cause rather sprawling,
unplanned growth, which would be more detrimental for a planned, controlled
subdivision. The 1976 Land Use Plan stated that preservation of farmland was
a goal of the County, but this tax valuation would seem to be counter-productive.

3. Ordinances and Regulations.

The format for this section will be a summary of the regulations, and their impact
on the development of Camden County.

Camden County Implementation and Permit Enforcement.

This is actually an ordinance to establish the correct procedures for appointing
the local permit officer and the procedures for the permit officer to follow in
reviewing applications, and issuing minor development permits in Areas of
Environmental Concern.

The impact of this regulation should be rather minimal. Such impact would be
msotly dependent on the standards put forth in the CAMA Land Use Plan.

Solid Waste Management Rules. (State)

These Rules govern the location of and operation of landfills and other methods
of solid waste disposal.

Camden County presently operates a.garbage collection program and a sanitary landfill.
These rules must be adhered to by the County and prevent contamination of around
and surface water in the vicinity of the landfill. Inspections are made on a regular
basis by State officials to ascertain that such regulations are met.

Laws and Rules for Ground Absorption Sewage Disposal Systems
of 3000 Gallons or Less Design Capacity. (State)

These laws and rules govern the use of septic tanks for sewage disposal. These laws
and rules cover almost all residences, businesses, and institutions in Camden County.
The laws are administered by the Health District Environmental Health Division
to ensure that septic tanks work properly and do not contaminate local wells, ground
water or nearby streams. Privies are also governed by these rules and laws.

These laws and rules have a major impact on the development of Camden County as no
central sewage collection and treatment system exists, nor is one likely to be
built. The Health Department, in effect, must approve the location of every residence
and business in the County with respect to the proper disposal of wastewater.
Certain areas of the County are not easily developed with septic tanks.

100

Zoning Ordinance, Adopted 1972.

Zoning is a legal mechanism for controlling the use of land in accordance
with an adopted land use plan. A jurisdiction (in this case, the county)
is divided into districts or zones and all land within the same district is
subject to the same regulations. Zoning is designed to separate incompatible
land uses for the good of the general public. Theoretically, zoning is supposed
to implement the land use plan, although frequently the two are never co-
ordinated.

The Camden County Zoning Ordinance sets forth eleven zoning districts,
although the present map shows only four of the districts. Most of the land
is zoned A-0 Agricultural-Open Space, reflecting the importance of aqriculture
and forestry to the county's economy. Single family homes are permitted in
the zone along existing state roads.- It would appear that land zoned A-0
would not be available for subdivision purposes. Some existing developed
areas and platted subdivisions are zoned RA 20 Residential Agricultural.
This included the Camden Point Shiloh-Texaco Beach Area. These areas are not
supposed to include mobile homes, although some are permitted by the action
of the Board of Adjustment. The RA 20 (MH) district holds the same design
standards, but permits mobile homes on individual lots. This district is
located in small scattered areas, mostly in the northern portion of the
'County. The Highway Commercial District stretches from the Pasquotank River
Bridge for about a mil,e with small areas of commercial at the intersection of
NC 343 and US 158.

Assumin-g that the current trend of slow or no growth continues, the zoning
pattern would probably show additional scattered RA 20 (MH) zones with pressure
on the Board of Adjustment to permit mobile homes in other areas.

Subdivision Regulations.

Subdivision regulations govern the division of land into lots or tracts for
building purposes. They set standards for the design of streets, lots, water
and sewer systems and other standards necessary for the protection of the
public health, safety, and welfare.

If properly enforced, subdivision regulations should encourage the development
of well-designed subdivisions with adequate improvements, such as roads.
The design standards calling for a maximum length of a cul-de-sac of 600
feet and a maximum block length of 1500 feet should create better circulation
patterns and promote well-thought-out designs instead of the common situation
of stringing houses out along existing roads or putting in one long dead-end
road with houses on one or both sides.

101

Flood Ordinance.

The County Board of Commissioners passed a Flood Insurance Land Use Ordinance
in November, 1973, in compliance with the National Flood Insurance Program.
The Planning Board has the responsibility for delineating or assisting in the
delineation of areas that are special flood hazard areas. Any new or
substantially improved structures located within the flood hazard area must
record with the Planning Board the elevation of the lowest floor of the structure.
The main purpose of the program is to encourage constructi.on above the
100-year flood level.

2. Means- for Enforcement of all Existing Local Land Use Regulations.

The Zoning Ordinance and subdivision regulations are enforced by the County
Planning Board and Board of Adjustment.

The building code is the state building code and is enforced by the County
Code on behalf of the Town and the County.

Septic tank regulations are those fostered by the State and enforced by the
District Health Department.

The Flood Plain Ordinance is administered by the local Permit Officer.

Environmental impact regulations, including major CAMA permits, are administered
by the'State; minor CAMA permits are administered by the local (county)
permit officer.

Others listed in the CAMA guidelines for land use planning, but not applicable
to Camden County include: municipal subdivision regulations, sedimentation
regulations and other codes or regulations.

3. Relevant State and Federal Regulations Affecting the Coastal Land
and Water Resources.

See attached list provided by the Department of Natural Resources and Community
Development.

102

STATE DEVELOPMENT REGULATIONS

Agency Licenses and Permits

Department of Natural Resources and Community Permits to discharge to surface waters
Development or operate wastewater treatment
plants or oil discharge permits;
Division of Environmental Management NPDES Permits, (G. S. 143-215)

Permits for septic tanks with a
capacity over 3,00 gallons/day
(G.S. 143-215.3)

Permits for withdrawal of surface
or ground waters in capacity use
areas (G. S. 143-215.15).

Permits for air pollution abatement
facilities and sources
(G. S. 143-215.108).

Permits for construction of com-
plex sources; e.g. parking lots,
subdivisions, stadiums, etc.
(G. S. 143-215.109).

Permits for construction of a well
over 100,000 gallons/day (G. S. 87-
88).

Department of Natural Resources and
Community Development Permits to dredge and/or fill in
Office of Coastal Management estuarine waters, tidelands, etc.
(G. S. 113-229).

Permits to undertake development
in Areas of Environmental Concern
(G. S 113A-118).
NOTE: Minor development permits
are issued by the local
government.

103

APPENDIX CONTINUED

Department of Natural Resources and Permits to alter or construct a
Community Development dam (G. S. 143-215.66).
Division of Earth Resources
Permits to mine (G. S. 74-51).

Permits to dri11 an explanatory
oil or gas well (G.S. 113-381).

Permits to conduct geophysical
exploration (G. S. 113-391).

Sedimentation erosion control
plans for any land disturbing
activity of over one contiguous
acre (G. S. 113A-54).

Department of Natural Resources and Permits to construct an oil refinery
Community Development
Secretary of NRCD

Department of Administration Easements to fi11 where lands are
proposed to be raised above the
normal high water mark of
navigable waters by filling
(G. S. 146.6 (c).

Department of Human Resources Approval to operate a solid waste
disposal site or facility
(G. S. 130-166.16).

Approval for construction of any
public water supply facility that
furnishes water to ten or more
residences (G.S. 130-160.1).

104

FEDERAL DEVELOPMENT REGULATIONS

Agency Licenses and Permits

Army Corps of Engineers Permits required under Section 9
(Department of Defense) and 10 of the Rivers and Harbors
of 1899; permits to construct in
navigable waters.

Permits required under Section 103
of the Marine Protection,
Research and Sanctuaries Act of 1972.

Permits required under Section 404
of the Federal Water Pollution
Control Act of 1972; permits to
undertake dredging and/or filling
activities.

Coast Guard Permits for bridges, causeways,
(Department of Transportation) pipelines over navigable waters;
required under the General Bridge
Act of 1946 and the Rivers and
Harbors Act of 1899.

Deep water port permits.

Geological Survey Permits required for off-shore
Bureau of Land Management drilling.
(Department of Interior) Approvals of OCS pipeline corridor
rights-of-way.

Nuclear Regulatory Commission Licenses for siting, construction
and operation of nuclear power
plants; required under the Atomic
Energy Act of 1954 and Title II of
the Energy Reorganization Act of
1974.

105

Federal Energy Regulatory Commission Permits for construction, operation
and maintenance of interstate pipe-
lines facilities required under the
Natural Gas Act of 1938.

Orders of interconnection of
electric transmission faci1ities
under Section 202 (b) of the
Federal Power Act.

Permission required for abandon-
ment of natural gas pipeline and
associated facilities under
Section 7C (b) of the Natural
Gas Act of 1938.

106

E. Constraints: Land Suitability

In accordance with the CAMA regulatfons, the following is a brief analysis of
the general suitability of the undeveloped lands within the County for
development, with consideration given to factors-of physical limitations for
development, fragile areas, and areas with resource potential. Maps for these
factors are presented in Section II to illustrate policy development. The
analysis presented here plus related sections of policy discussion were the
basis for the design of the Land Classification Map.

1. Physical Limitations for Development.

The following areas were identified as likely to have conditions making
development costly or causing undesirable consequences if developed:

a. Hazard Areas.

As shown on the Hazardous Areas Map, page 15 , hazards in Camden County
consist of flood prone areas; construction of US 17 North; fuel storage
tanks.in South Mills; unpermitted dumps; the railroad along Highway 158;
the county landfill; and the Coast Guard Air S.tation in Pasquotank County.

Flood-prone areas shown on the map have a I in 100 chance on the average of,
being inundated during any year. As a rule, development should either stay away
from those areas or be undertaken so as to withstand the likelibood of inundation.

Most of these hazards are discussed in more detail and also mapped under the
discussion of land use incompatibility problems, above, page 91.

b. Areas with Soil Limitations.

Pages 108 and 109 show the basic information regarding soil limitation that
was set forth in the 1976 Land Use Plan. This information was provided by
the Soil Conservation Service of the USDA as part of their technical assistance
to the Camden County Board of the Albermarle Soil and Water Conservation
District. The only data available is a general soils map for the'County, no
specific soils survey has been done. More detailed soils analysis is not scheduled
until 1982.

As shown on the General Soils Map, page 108, approximately 54% of the County
is covered,by the Ponzer-.Pamlico Association which is a very wet soil with
a high water table, in many areas inundated much of the year. These areas
are generally unsuitable for development even if the water is drained off.
The last column of page 109 indicates the poor drainage characteristics
of the general soils of the County.

107

High water table and the shrink-swell characteristics of the soil are two
other conditions that should be taken into consideration when foundations
for structures are being considered. Page 109 gives severity of limitation
.for foundations under the column entitled Major Factors Affecting Selected
Use. As shown on that chart, many areas of Camden County pose severe constraints
for any-construction of large buildings. Elvis Graves of the Camden SCS
office reported that the three schools in the county all. have problems due
to the soilsi especially the high water table. The Middle School is reported
to be the worst problem. Any possible location of industry in Camden County
should be carefully studied with a detailed soil analysis.

The problems caused by soils in regard to septic tank filter fields affect
all residences in Camden County as no central sewer system is available.
In discussion with Elvis Graves, he pointed out that the soils are wettest
towards the southern end of the County. His opinion is that the best soil
in the County is around the Camden community.. In discussion with Mr. Pierce
and Mr. S.V. Squires of the Albermarle Health District, it was learned that
extra efforts are frequently needed to make septic tanks work in the area.
These efforts include ditching to lower the water table, excavation of poor
soil (clay) and replacement with soils which will percolate properly, and
installation of longer drain fields to spread the effluent over larger areas.
In addition, lots which are to contain both a well and a septic tank must
be at least 40,000 square feet in size instead of the 20,000 square feet
required in more favorable soils. Despite the poor soil, no well contamination
has been reported by the Health Department.

The first column of page 109 indicates the limitation of soils for septic
tank waste disposal. Again, this is general information and is useful for
broad planning purposes. Specific site analysis by the county sanitarian
prior to approval of a septic tank system should be conducted.

0 4
3

5
10
10
4
1 WAGRAM-PACTOLUS-NORFOIX 5
2 COXVILLE-CRAVEN-L.ENOIR 10
3 BLADEN-BAYBORO-HYDE
4 BERTIE-OTHELLO-DRAGSTON
5 OTHELLO-PASQUOTANK-BARCLAY
6 IIYDE-WEEKSVILLE-pAuLICO
7 PONZER-WASDA- DARE 10
8 NEWHAN-COROILA-DUCKSTON
9 CAPERS
10 DOROVAN-DARE-JOHNSTON

General Soils Map

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110

c. Water Supply Areas.

Most of the residences in Camden County obtain water from ground wells which
tap into one of three aquifers which yield potable water; the water table
aquifer, the Upper Yorktown aquifer, and the Lower Yorktown aquifer. Of
these, the first two are shallow, while the latter is deeper.

The principle water source in north eastern North Carolina is from wells
drawing water from the Upper Yorktown aquifer and water table aquifer.

The quality of the Upper Yorktown aquifer and water table aquifer varies.
The most severe problems with ground water are hardness, iron concentration
and chloride or salt content. ThE quality' of the water table aquifer, which
is 5 to 13 feet below the surface and in places 130 feet thick, is generally
more acceptable for domestic purposes.

I@Iater is also drawn from the deeper source, but its chemical makeup in this
area renders it useless for domestic or industrial purposes without very
extensive treatment. Also clays of considerable thickness and low permeability
retard the verticle recharge of these aquifers and thus limit withdrawals.

Bob Cheek of the Ground Water Division of the Department of Human Resources
suggested that a large user could use a multi-screen well system, which would
blend water from all three aquifers to increase yield. However, large
industrial water users would not bE an appropriate development in the County
as a large, continued withdrawal of water from the aquifers could result in
salt water intrusion of the aquifers.

Recharge of the shallower aquifers is primarily through precipitation via the
water table aquifer. Deeper aquifers are recharged via vertical/horizontal
leakage from adjacent aquifers,through subsurface clays. The recharge rate
depends upon pemeabil'ity and thickness of subsurface sediments, as well as
hydralic head, but generally is very slow in the aquifers of northeastern
NC because of the thickness and low permeability of surface clays. As
pointed out by the Camden Development Advisory Committee, recharge of the
aquifer has been deminished by drainage in the northern part of the County for
agricultural and forestation purposes. This, with North Carolina's winter
drought, leaves the ground water supply lower than normal.

Surface waters are classified by the State of North Carolina according to
their suitability for certain uses, including domestic consumption, bathing,
food processing and shellfish harvesting. These classifications are divided
into fresh and salt water.

There are no known point sources of pollution in Camden County, except the
discharge of the remains from the water treatment plant of the South Mills
Water Association. Non-point sources of the pollution are mainly those
resulting from agricultural activities, such as fertilizer and insectides.
At this time, these have not been a major cause of eutrophication of the
rivers. Eutrophication is the over-nourishment of the water caused by
agricultural runoff. Such problems with algae bloom as experienced in the
Chowan River are a potential problem in Camden County.

d. Areas Where the Predominant Slope Exceeds 12 Percent.

The topography of the County is very flat with no slopes of 12% or more.
Most of the constraints to development, then, come from soil characteristics
and flood proneness, rather than inclines and the additional expense of
mudslide and extraordinary erosion protection.

2. Fragile Areas.

Areas which could easily be damaged or destroyed by inappropriate or poorly
planned development in Camden County include: the AECs; wooded swamps;
areas which protect remnant species; water resources; erodible shoreline;
historic sites; and air resources.

Many of these areas, primarily the AEC's, are shown on the Fragile Areas Map,
page 8 . A thorough discussion of the AEC's may be found under policies,
Section II, page 7

Wooded Swamps are discussed in Section IV above, page 88 , under analysis of
existing land use. The policy section, page 22 also directs specific statements
toward the protection of this locally valuable resource.

Areas which protect remnant species were defined in the 1976 Land Use Plan
as potential'areas of environmental concern. While none of these areas are
designated as AEC's in Camden County, there are still areas that sustain
five species of native plants or animals designated as remnant b., the
North Carolina Natural Heritage Program.

The CAMA regulations regarding AEC's provide management objectives for
officially designated areas which protect remnant species: to protect the
habitat conditions that are necessary to the continued survival of threatened
and endangered native plants and to minimize land use impacts that might
jeopardize these conditions (15 NCAC 7H, page 7-34 and 7-35).

The Black Bear lives in the wooded swamps of Camden County. The Department
of Natural Resources and Community Development estimates that 4,000 to
5,000 square acres per bear (6 square miles) is required. Bears are threatened,
due to habitat destruction and road development, since roads lead to road kills,
and because bears need remoteness from humans. Bears have a liking for peat
bogs, also available in northeastern Camden County.

The major bear habitat in Camden.exists in the southeast and northwest parts
of the County. Most previous habitats in the middle of the county have been
taken by human activities. The Department of Natural Resources and Community
Development recommends that a corridor of bear habitat be preserved between
the two larger remaining areas.

112

Interviews with the NC Natural Heritage Program reported several sitings of
other rare species in Camden County which are reflective to the natural
setting there. These include the Red Cockaded Woodpecker; the Wing Seed
Box Marsh (Plant, Ludwigia Alata), Atlantic White Cedar (plant community);
ferns -- species cluster found in Dismal Swamp and in the Typelo Swamp.

Additional natural resources which qualify locally as fragile areas, though
not shown on the Fragile Areas Map itself, page8 , include proposed conservation
areas, as noted in North Carolina Water Resources Framework: Proposed Projects
and Poli (NC NRff, 1977). This document shows -des_T_g_na_t_e_E conservation areas,
including natural areas, wilderness, extension areas, and state parks in the
northern and southeastern tips of the county. It also designates the area
north of Hwy 158 as a Water'Evaluation Area, and the Elizabeth City Bridge
to Belcross as a sewer by-pass area.

As noted in the policy discussion in Section II, conservation areas may be used
for passive recreational uses. Under the NC Water Resources Framework,
several areas in the County have been recommended for such activity. They
include the Pasquotank River from South Mills to the Hwy 158 bridge, as a water
trail for canoes; a wooded trail just north of and parallel to Hwy 158 to
Belcross and turning north for about 3 miles as a preserved corridor;
the creek feeding the North River, south from Hwy 34 to the point Where the
Barco SW and Elizabeth City SE quad maps meet, as a natural and scenic river;
and the North River itself, south into the Pamlico River, as a designated
public fishing stream.

Thus, Camden has significant potential as a conservation and recreational area.
Conscientious use of these areas is not only consistent withthe rural nature
of the County but with the underlying purposes of this Land Use Plan Update.

The next type of Fragile area in Camden County is its' erodible shoreline.
In 1975 SCS made a broad study of shoreline erosion in the coastal counties
using aerial photo raphs and on-site measurements. Of the 38.8 miles of
shoreline studied ?around the southern end of the County) , 32 miles show signs
of erosion. Camden County appears to have some erosion problems, but this
.situation is not serious. The area studied would now fall into the Estuarine
Shoreline AEC (see Fragile Areas Map) and therefore a CAMA development permit is
required for development. This should help since before development occurs,
the matter of impact upon erosion will be considered and mitigation action required.

Historic sites and structures represent another resource in Camden County which
could be damaged by inappropriate development. While no official survey of
these properties has been undertaken, several have been sited and a few listed.
See the section above regarding Cultural and Institutional Land Use, page 82
for discussion.

Finally, the air in this rural, county is a fragile resource. Mr. Vic Copeland
of the NC NRCD Field Office in Washington, NC reported that particulates
in Camden County-'s air have been measured at 48 to 59 microgram per cubic
meter over the last five years. This does not represent a significant level
of air pollution.

113

Presently no point sources of air pollution exist in Camden County. There
are two-major sources of non-point pollution; automobile exhaust and smoke
from burning for land clearing operations. Automobile exhaust is not a
very significant problem as traffic is presently not very heavy. However,
during the fall of 1980, the open burning for land clearing purposes caused
numerous problems regarding smoke hanging in the air. In December, 1980,
NC NR & CD banned the further setting of fires for land clearing purposes and
required that those presently burning take all possible steps t; extinguish
the flames. Examples of the latter form of pollution are well known in the
area since the burning of wi.nd-rows in Northern Pasquotank CoUnty has caused
air pollution for several m.onths.

The County has none of the following: sand dunes along the outer banks;
ocean beaches; areas containing unique geological formations; and
registered natural landmarks.

3. Areas with Resource Potential.

As noted in the analysis of existing land use above, pages 87-88 , Camden
County is generally productive for agriculture and forestry lands. Without
a detailed soils analysis and a site specific analysis of production practices
and productivity itself, it is impossible to designate areas as "prime" for
farms or commerical forestation.

Minerals have not played a significant role as productive resources.
There are 5 closed sand mines in Camden. In 1976, five of the sand mines
were still operating and produced 5,000 tons of sand with a market value of
$7,000 (see page 114). This lack of economic importance of minerals in
Camden's past may not be true in the future.

As shown in NRCD's 1980 Report on Peat Concentrations, about 1/3 of North
Carolina's 100 square mile Dismal Swamp peat.deposit lies in Camden County.
This means that between 17 and 25 million tons of moisture-free peat may be
present in the county. The peat varies in thickness, water content, and depth
below the surface, but is generally thought to be of good quality with as
high as a 10,00OBtu/lb heat rating. Were all peat to be available, Camden
would have the equivalent of 13 to 19 million tons of coal or 54 to 80 million
barrels of oil. The bulk of the reserve is believed to lie beneath the state-
owned lands in the northern part of the county.

Parks and outdoor recreation sites are a potentially valuable productive resource
to Camden County.' Several of these have been addressed in the discussion of
fragile areas, page 85.

114
CAMDEN COUNTY @g

Sand Deposits

N-

A I

ICP

Source: Camden County Land Use Plan: 1975-1985

115

The most outstanding undeveloped resource is the Dismal Swamp, which has its
own Master Plan for development of selected sections to provide limited
success for visitors for camping, hiking, and nature study. Full implementation
of the plan could bring 50,000 to 100,000 visitors to the area per year.

The economic importance of fisheries in Camden County is small. The issues
of sport fisheries and gamelands are not considered here due to their small
impacts.

116

F. Constraints: Capacity of Community Facilities.

This section describes selected community facilities in terms of capacity,
extent of utilization, and implications for development in the future.

1. Existing Water Servi ce System.

As noted above under Water Sources, page 110. Camden County's primary source
of water is from ground wells. Two-thirds of the County is on private wells,
with the remainder served by a community, non-profit water system around the
village of South Mills.

Founded in 1962, the South Mills Water Association is financed by loans from
the Farmers Home Administration and user fees. Operating on a subscription
arrangement, it has expanded. to serve 1,023 metered residential and agricultural
customers.

The system is fed by nine ground wells and stored in two elevated tanks,
one in Pasquotank of 100,000 gallons, and one in the village of 75,000, and
one ground storage tank at the water treatment plant in the village (100,000
gallons). The pumping capacity is 225,000 gallons per day.

Since the summer of 1980, the system has been operating at full capacity.
This led to the replacement of well 7'r 1 in August, and the initiation of
studies regarding.using river water in October. In May, the studies revealed
that this latter alternative is too costly, and the search for additional
wells was begun. Thus, the recommendation by William F. Freemand Associates
in 1976 that two additional wells be added by 1985 and one additional well
by the year 2000 still holds.

Preliminary sketches of expanding down Hwy 343 to Shiloh have been completed,
but are constrained because of lack of water.

2. Wastewater Treatment.

Camden County does not have a community or municipal sewer sys-tem. All
sewage is presently being treated by individual septic tanks as required by
the County health department or privies. Based on 1970 Census Bureau information
there were at that time 1,221 families using septic tanks in the County and
1,723 families without access to a central sewer system.

Only the three schools use septic tanks with greater than 3,000 gallonsdesign
capacity. Each have additional systems to operate effectivelv. The Middle
School is a land based demonstration project monitored by NCSU.

Given the poor soils of the County, and the already heightened requirements for
additional square footage for residential septic installment, continued reliance
on traditional septic systems is likely to propose undue constraint to development,
particularly in the areas of population growth (Camden County).

117

3. Schools

Camden County's school system has one elementary, one middle, and one high
school all located in the Camden community.

SCHOOL DESIGN CAPACITY
Grandy 475
Middle 600
High 500
TOTAL -1,575

1980 enrollment is 1,262, o'r 80%. of capacity. In line with recent demographic
changes, enrollment is predicted to drop by 1985 to 1,149, or 73% of capacity.
Accordingly, there are no plans to build additional capacity at this time,
although the new requirement for education of the handicapped will necessitate
some renovation.

4. Landfill.

The County has one landfill facility in the south easte rn section of the County
(see Hazard Areas 1,11ap, page 15 ). Regulated by the NC Department of Human
Resources which inspects the site regularly, the capacity of the current site
is adequate for 15 to 20 years. Additional capacity is available nearby when
needed.

As noted in the analysis of existing land use, there is a potential problem
with the high water table at the landfill site. Accordihq to Mr. Bill Morris
of DHR, Greenville, NC, this problem may be corrected. The remoteness of the
site minimizes the landfill's impact on surrounding land uses, a particular
advantage of the existing site.

5. Recreation Facilities.

There are no recreational facilities located in the County although the
Commi ss i one rs; do pay a $ 10,000 per year f ee to El i zabeth Ci ty to provi de
access of Camden citizens to their program.

Discussion of recreation and conservation areas owned by the state, particularly
the Dismal Swamp State Park, is provided under resource production page 34.

6. Roads.

The major roads are US 17, US 158, and NC 343. Maintenance and improvement
is the responsibility of the North Carolina Department of Transportation.

118

The Department is currently widening US 17 from South Mills to the NC/VA
border. According to'DOT engineer, Bill Marley, access to the highway will
be just north of where the canal intersects with US 17, and at SR 1233,
1231, and 1226 (see page 119 ) @*

Based on 1974 information compiled by the Department of Transportation the
section of US 17 between South Mills and the North Carolina-Virginia line
had an ADT of 3,800 vehicles a day. Based on the same 1974 information
US 158 bet-jeen Elizabeth City and the Camden Community h6d an ADT of 8,000
vehicles per day. Also serving the County are NC 343 and NC 168. 343 is
serving the area between South Mills, Camden, and the Shiloh/Old-Trap area of
the County. This facility based on 1974 information had a maximum ADT of
1,500 vehicles in the area south of the Camden Community with 1,000
between Camden and South Mills. Taking into consideration the slow growth
history of the county and the fact that many citizens have indicated they
wish the county to remain an essentially rural area all of the above mentioned
facilities should be adequate to serve the needs of residents and others
for the ten-year planning period.

According to the DOT summary of paved and unpaved mileage comprising the
state highway system (1978), Camden had 62.4% (92.4 miles) of its state
secondary road system (148.16 miles) paved, with 37.61/ (55.76 miles) unpaved.
All of its 44.28 miles of state primary roads are paved. This renders 71%
(136.72) of the total highway system (192.48 miles) in.Camden paved (DOT
summary, page 390).

In 1978, the state spent $320,000 in Camden County for maintenance and construction
in 1978, $72,000 for primary, and $248,000 for secondary roads. This amounts
to $1,636 per mile of primary road, and $1,674 per mile of secondary roads
(DOT summary, page 388).

*The Commissioners felt that this."limited access" may be detrimental to the
economy in South Mills. See Section II, page 42 for related policy statement.

VA.

M IM.@ - - ------
rUinmond N.C7- 119

RY 17 North
(under construction)

Canal

t1228
1231 .6 1232
Ac/- F---,,s -ro 17 % .9
1231 %
1233 1230
% Sharon
IL .1227 -2 LI C@ 1229
1229
Lilly

2
1225 1.2
Tor Corner

2 6

1224
Ho .rseshoe 2.2 Nr. 1234
1220 'fit 1225 .5
1219 Q
1235

1221
t
1.0 .3 Pierceville
4b 123t
1219 1246 . .... 1237
- Ti17 .6
South Mi

1237

1211. L2@2 'Johnsom 1238
Corner
.1212.
1224
Source: NC Dept. of Transpor t a t Ttf"@

cl@
kl@
_6@ 3 5'
343
1211
C4 .(9

.10

1-20

G. Estimated Future Demand.

1. Population.

After comparing several methods of population projection, the following
estimates were chosen from the Tables of Population Estimates and Projections
reprinted from the Update, North Carolina Population Projections , Office of
State Budget and Management, Demographic Research, June, 1980.

Accordingly, the population in Camden is projected as shown below:

Popijlation, Camden County, NC
Historical Population Projected Population
1960 1970 1980* 1985 1990 2000*
5598 5453 5829 6200 6400 6592

*The actual 1980 figure shown here was not used in the state projections.
The year 2000 estimate was derived by trending the 1960 through 1990
@umber shown, rendering a more reasonable estimate than was acquired
in other methods.

Trends within the population, by age group, between 1980 and 1990 are as follows:

.1980 .1990 % Change
Age Group % tot. pop % tot. pop. 1980-1990
0- 14 1,399 9 1,M 23.82 + 9%
15 - 24 1,085 18.54 863 13.44 -20%
25 - 34 804 13.73 1, 043 16.25 +30%
35 - 49 959 16.38 1,273 19.82 +33%
50 - 64 910 15.55 892 13.90 - 2%

65 - + 698 11.92 820 12.77 +17%

TOTAL 5,855 100% 6,420 100% +10%

121

As shown in the exhibit above, the population groups 0 14, 15 - 34,
35 - 49, and 65+ are expected to grow over the planning period, as is the total
population. The age groups 15 - 24 and 50 - 64 are expected to decline as
shown. These trends mean that greaterdemand is likely to be placed upon
community facilities (schools) and upon the local economy for jobs and housing,
plus increased services for the elderly.

Between 1980 and 1990, the racial population of the county is shown as follows:.

PROJECTED CHANGE IN RACIAL COMPOSITION

1980 1990
% tot. pop. % tot. pop.
White 3,786 65% 4,220 66%
Non-white 2,069 35% 2,200 34%
TOTALS 5,855 100% 6,420 1000/10

Thus, the racial composition is expected to remain virtually constant as the
population grows and changes in age distribution.

Changes in number,*race, and racial composition are influenced by explained
natural increase and migration patterns. According to the 1990 population
projections done by the Office of State Budget and Management (April, 1980), the
outward migration of the 1960's (-11.95) which was reversed to a 2.74 rate
of inmigration in the 1970's, will'be doubled to 5.44 in the 1980's. The
most significant change will occur among the non-white population, as the total
outmigration rate of the '70's (-7.59) will be cut in half; the rate of
outmigration of non-white males will be reduced by half, and the outmigration
of non-white females will be reduced by 80%. The fact that the proportion
.of population stays constant with such significant changes in migration is
not explained by natural increase differences. In fact, the natural increase
rates of non-white in Camden County was higher (3.8) than whites (1.5) between
1974 and 1978. If this pattern continues,then the fluctuation proportion of
non-whites should increase, unless the overall population is growing fast
enough to absorb this difference.

Information for projection of seasonal population was not available. However,
during discussions with the County Commissioners it was determined that during
the summer months there is presently a negative effect with local citizens
traveling to the beach for weekends because of the close proximity to the county.
During the fall and winter hunting season there is some impact of hunters
on the locality, but specific information was not available.

122

2. Future Land Needs

As shown below, Camden, County has had a sporadic increase and decrease in
population for the past 80 plus years.

CAMDEN COUNTY

Past Population Trends 1900-1980
1/0 Increase
Years Poputlation. People or Decrease
1900 - 1910 5,474 to 5,640 166 increase 3.0
1910 - 1920 5,640 to 4,382 258 decrease -4.6
1920 - 1930 4,382 to 5,462 80 increase 1.5
1930 - 1940 5,462 to 5,441 21 decrease -0.4
1940 - 1950 5,441 to 5,223 218 decrease -4.0
1950 - 1960 5,223 to 5,598 375 increase 7.2
1960 - 1970 5,598 to 5,453 145 decrease -2.6
1970 - 1980 5,453 to 5,825 376 increase 7.0

To the contrary, the projections above indicate that during the ten-year
planning period, the county may expect to grow at a rather slow rate,
approximately 570 persons. This very small expected increase does not place
a heavy burden on the land, since it is expected to stimulate little commercial
and industrial development. At most, it appears to stimulate need for 208
additional housing units (570 divided by 3.0 persons/unit xl.09.8 vacancy rate).
As recommended in the new citizen's survey, this amount of existing growth
may be readily accommodated inside existing communities or neighborhoods.
Like many other ru.ral areas not expecting development pressures, Camden
County could be affected by a sudden increase in commercial forestation,
commercial mining of the peat deposit, or large scale development of the platted
lots on the 5000 acres of Camden Point Shores. The location of one or two
industries near Belcross could dramatically increase employment and thereby
accelerate the projected demand for res ident ial and commercial development.

Regardless of the anticipated future, the land in Camden County only has so
much capacity to sustain development. As noted in the section on constraints
to development, the strongest limitations are with regard to soils, flood
proneness, and amount of water available for development.

While there is plenty of vacant land in Camden County, and land near the
major highways, much of it has poor development qualities. These should
-be taken into account on a site by site basis, within the framework of the
Land Classification Map above, page 54 . In this manner, Camden County can
be prepared to handle either the limited growth projected above, or undetermined
quantities of corporate or residential development not expected at this time.

123

3. Community Facilities Demand.

a. Schools.

All three schools in the County's school system are considered to be adequate
to handl.e the future population of the County. In fact, the school officials
are presently anticipating a decrease in student enrollment during the ten-
year planning period. This trend is reflected in the previous census figures
for the elementary school age group.

b. Roads.

The primary road system should be adequate during the planning period.
Any improvements are the responsibility of the North Carolina Department of
Transportation.

c. Water.

Currently, demand for water from the South Mills Water Association System
exceeds its capacity. Industrial development on a small scale would be
feasible utilizing this system for a water source, if water can be found
in the near future.

124

V. APPENDIX:

1. Excerpt, 15 NCAC 7H, (page 125).
2. Citizen Survey Questionnaire, November 18, 1980 (page 134).
3. Checklist for Land Use Plan (page 142).

4. Synopsis page 146).

125

NRBCD COASTAL MANAGEMENT 7H . 0200

Eff . September 9, 1977. 207
.0204 AECs WITHIN THE ESTUARINE SYSTEM 209
The following regulations in this Section determine each AEC 211
within the estuarine system, describe its significance, 212
articulate the policies regarding development, and state the
standards for development within each AEC. 213

History Note: Statutory Authority G.S. 113A-107(a); 216
113A-107(b); 217
Eff. September 9, 1977. 218

.0205 COASTAL WETLANDS 220
(a) Description. Coastal wetlands are defined as any salt 222
marsh or other marsh subject to regular or occasional flooding by 223
tides, including wind tides (whether or not the tide waters reach 224
the marshland areas through natural or artificial watercourses),
provided this shall not include hurricane or tropical storm 225
tides.
Coastal wetlands contain some, but not necessarily all, of the 226
following marsh plant species: 227
(1) Cord Grass (Spartina alternitlora), 229
(2) Black Needlerush (Juncus roemerianus), 230
(3) Glasswort (Salicornia spp.), 231
(4) Salt Grass (Distichlis spicata), 232
(5) Sea Lavender (Limonium spp.), 233
(6) Bulrush (Scirpus spp.), 234
(7) Saw Grass (Cladium jamaicense), 235
(8) Cat-tail (Typha spp.) , 236
(9) Salt Meadow Grass (Spartina patens), 237
(10) Salt Reed Grass (Spartina cynosuroides). 238
Included in this definition of coastal wetlands is "such 240
contiguous land as the Secretary of NR&CD reasonably deems 241
necessary to affect by any such order in carrying out the
purposes of this Section." (G.S. 113-230 (a)) 242
(B) Significance. The unique productivity of the estuarine 243
system is supported by detritus _(decayed plant material) and 244
nutrients that are exported from the coastal marshlands. The
amount of exportation and degree of importance appears to be 245
variable from marsh to marsh, depending primarily upon its 246
frequency of inundation and inherent characteristics of the
plant species. Without the marsh, the high productivity 247
levels and complex food chains typically found in the estuaries 248
could not be maintained.
Man harvests various aspects of this productivity when he 249
fishes, hunts, and gathers shellfish from tne estuary. Estuarine 250
dependent species of fish and shellfish such as mennaden, shrimp,

NORTH CAROLINA ADMINISTRATIVE CODE 12/01/80 7-7

126

NR&CD - COASTAL MANAGEMENT 7H . 0200

flounder, oysters, and crabs currently make up over 90 percent of 251
the total value of North Carolina's commercial catch. The 252
marshlands, therefore, support an enormous amount of commercial
and recreational businesses along the seacoast. 253
The roots, rhizomes, stems, and seeds of coastal wetlands act 255
as good quality waterfowl and wildlife feeding and nesting 256
materials. In addition, coastal wetlands serve as the first line 257
of defense in retarding estuarine shoreline erosion. The plant
stems and leaves tend to dissipate wave action, while the vast 258
network of roots and rhizomes resists soil erosion. In this way, 259
the coastal wetlands serve as barriers against flood damage and
control erosion between the estuary and the uplands. 260
Marshlands also act as nutrient and sediment traps by slowing 262
the water which flows over them and causing suspended organic and 263
inorganic particles to settle out. In this manner, the nutrient 264
storehouse is maintained, and sediment harmful to marine
organisms is removed. Also, pollutants and excessive nutrients 265
are absorbed by the marsh plants, thus providing an inexpensive 266
water treatment service.
(c) Management Objective. To give highest priority to the 268
protection and management of coastal wetlands so as to safeguard 269
and perpetuate their biological, social, economic and aesthetic
values; to coordinate and establish a management system capable 270
of conserving and utilizing coastal wetlands as a natural 271
resource essential to the functioning of the entire estuarine
system. 272
(d) Use Standards. Suitable land uses shall be those 273
consistent with the management objective in this Rule. Highest 274
priority of use shall be allocated to the conservation of
existing coastal wetlands. Second priority of coastal wetland 275
use shall be given to those types ot development activities that 276
require water access and cannot function elsewhere.
Unacceptable land uses may include, but would not be limited 277
to, the following examples:restaurants and businesses, 278
residences, apartments, motels, hotels, and trailer parks;
parking lots and private roads and highways; and factories. 279
Examples of acceptable land uses may include utility easements, 28O
fishing piers, docks, and agricultural uses, such as farming and
forestry drainage, is permitted under North Carolinas Dredge and 281
Fill Act and/or other applicable laws.
In every instance, the particular location, use, and design 282
characteristics shall be in accord with the general use standards 283
for coastal wetlands, estuarine waters, and public trust areas
described in Rule .0208 of this Section. 284

History Note: Statutory Authority G.S. 113A-107(a); 287
113A-107(b); 113A-113(B)(1); 288
N0RTH CAROLINA ADMINISTRATIVE CODE 12/01/80 7-8

127

NR&CD COASTAL MANAGEMENT 7H .0200

Eff. September 9 1977; 289
Amended Eff. January 24, 1978. 290

.0206 ESTUARINE WATERS 292
(a) Description. Estuarine waters are defined in G.S. 113A- 294
113(b)(2) as "all the water of the Atlantic Ocean within the 295
boundary of North Carolina and all the waters of the bays,
sounds, rivers, and tributaries thereto seaward or the dividing 296
line between coastal fising waters and inland fishing waters, as 297
set forth in an agreement adopted by the wildlife Resources
Commission and the Department of Natural Resources and Community 298
Development filed with the Secretary of State, entitled 'Boundary 299
Lines, North Carolina Commercial Fishing -- Inland Fishing 300
Waters,' Revised to March 1, 1965."
(b) Significance. Estuarine waters are the dominant component 302
and bonding element of the entire estuarine system, integrating 303
aquatic influences from both the land and the sea. Estuaries are 304
among the most productive natural environments or North Carolina.
They support the valuable commercial and sports fisheries of the 305
coastal area which are comprised of estuarine dependent species 306
such as menhaden, flounder, shrimp, crabs, and oysters. These
species must spend all or some part of their life cycle within 307
the estuarine waters to mature and reproduce. Of the 10 leading 308
species in the commercial catch, all but one are dependent on the
estuary.
This high productivity associated within the estuary results from 310
its unique circulation patterns caused by tidal energy. Fresh 311
water flow, and shallow depth; nutrient trapping mechanisms, and 312
waters transports nutrients, propels plankton, spreads seed 313
stages of fish and shellfish, flushes wastes from animal and
plant life, cleanses the system of pollutants, controls salinity, 314
shirts sediments, and mixes the water to create a multitude of 315
habitats. Some important features of the estuary include mud and
sand flats, eel grass beds, salt marshes, submerged vegetation, 316
flats, clam and oyster beds, and important nursery areas. 317
Secondary benefits include the stimulation of the coastal 319
economy from the spin off operations required to service 320
commercial and sports fisheries, waterfowl hunting, marinas,
boatyards, repairs and supplies, processing operations, and 321
tourist related industries. In addition, there is considerable 322
nonmonetary value associated with aesthetics, recreation, and
education.
(c) Management Objective. To give the highest priority to the 324
conservation and management of the important features of 325
estuarine waters so as to safeguard and perpetuate their
biological, social, aesthetic, and economic values; to coordinate 326

NORTH CAROLINA ADMINISTRATIVE CODE 12/01/80 7-9

128

NR&CD - COASTAL MANAGEMENT 7H.020O

and establish a management system capable of conserving and 327
utilizing estuarine waters so as to maximize their benefits to
man and the estuarine system. 328
(d) Use Standards. Suitable land/water uses shall be those 329
consistent with the management objectives in this Rule. Highest 330
priority of use stall be allocated to the conservation of
estuarine waters and its vital components. Second priority of 331
estuarine waters use shall be given to those types of development 332
activities that require water access and use which cannot
function elsewhere such as simple access channels; structures to 333
prevent erosion; navigation channels; boat docks, marinas, piers, 334
wharfs, and mooring pilings.
In every instance, the particular location, use, and design 335
characteristics shall be in accord with the general use standards 336
for coastal wetlands, estuarine waters, and public trust areas 337
described in Regulation .0208 of this Section.

History Note: Statutory Authority G.S. 113A-107(a); 340
113A-107(b); 113A-113 (b) (2); 341
Eff. September 9, 1977; 342
Amended Eff. January 24, 1978. 343

.0207 PUBLIC TRUST AREAS 345
(a) Description. Public trust areas are all waters of the 347
Atlantic Ocean and the lands thereunder from the mean high water 348
mark to the seaward limit of state jurisdiction; all natural
bodies of water subject to measurable lunar tides and lands 349
thereunder to the mean high water mark; all navigable natural 350
bodies of water and lands thereunder to the mean high water level
or mean water level as the case may be, except privately-owned 351
lakes to which the public has no right of access; all water in 352
artificially created bodies of water containing significant
public fishinq resources or other public resources which are 353
accessible to the public by navigation from bodies of water in 354
which the public has rights of navigation; and all waters in 355
artificially created bodies of water in which the public has
acquired rights by prescription, custom, usage, dedication, or 356
any other means. In determining whether the public has acquired
rights in artificially created bodies of water, the following 357
factors shall be considered:
(1) the use of the body of water by the public, 359
(2) the length of time the public has used the area, 360
(3) the value of public resources in the body of water, 361
(4) whether the public resources in the body of water are 363
mobile to the extent tnat they can move into natural 364
bodies of water,

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NR&CD - COASTAL MANAGEMENT 7H .0200

(5) whether the creation of the artificial body of water 365
required permission from the state, and 366
(6) the value of the body of water to the public for 367
navigation from one public area to another public area. 368
(b) Significance. The public has rights in these areas, 370
including navigation and recreation.In addition, these areas 371
support valuable commercial and sports fisheries, have aesthetic
value, and are important resources for economic development. 372
(c) Management Objective. To protect public rights for 373
navigation and recreation and to observe and manage tne public 374
trust areas so as to safeguard and perpetuate their biological,
economic and aesthetic value. 375
_ (d) Use Standards. Acceptable uses shall be those consistent 376
with the management objectives in (c) of this Rule. In the 377
absence of overriding public benefit, any use which significantly
interferes with the public right of navigation or other public 378
trust rights which the public may be found to have in these areas 379
shall not be allowed. The development of navigational channels
or drainage ditches, the use of bulkheads to prevent erosion, and 380
the building of piers, wharfs, or marinas are examples of uses 381
that may be acceptable within public trust areas, provided that
such uses will not be detrimental to the public trust rights and 382
the biological and physical functions of the estuary. Projects 383
which would directly or indirectly block or impair existing 384
navigation channels, increase shoreline erosion, deposit spoils
below mean high tide, cause adverse water circulation patterns, 385
violate water quality standards, or cause degradation of 386
shellfish waters are generally considered incompatible with the
management policies of public trust areas. In every instance, 387
the particular location, use, and design characteristics shall be 388
in accord with the general use standards for coastal wetlands,
estuarine waters, and public trust areas. 389

History Note: Statutory Authority G.S. 113A-107(a); 392
113A-107(b); 113A-113(b)(5); 393
Eff. September 9, 1977. 394

.0208 USE STANDARDS 396
(a) General Use Standards 397
(1) Uses which are not water dependent will not be 399
permitted in coastal wetlands,estuarine waters, and 400
Public trust waters. Restaurants, residences,
apartments,motels, hotels, trailer parks, private 401
roads, factories, and parking lots are examples or uses
that are not water dependent. Uses that are water 402
dependent may include: utility easements; docks; 403
wharfs; boat ramps; dredging; bridges and bridge

NORTH CAROLINA ADMINISTRATIVE CODE 12/0l/80 7-11

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NR&CD COASTAL MANAGEMENT 7H .0200

approaches;revetments,bulkheads;culverts;groins; 404
navigational aids; mooring pilings; navigational
channels; simple access channels and drainage ditches. 405
(2) Before being granted a permit by the CRC or local 406
permitting authority, there shall be a finding that the 407
applicant has-complied with the following standards:
A) The location, design, and need for development, as 409
well as the construction activities involved must 410
be consistent with the stated management
objective.
B) Before receiving approval for location of a use or 411
development within these AECs, the permit-letting 412
authority shall find that no suitable alternative
site or location outside of the AEC exists for the 413

use or development and, further, that the
applicant has selected a combination of sites and 414
design that will have a minimum adverse impact
upon the productivity and biologic integrity of 415
coastal marshland, shellfish beds, submerged grass
beds, spawning and nursery areas important 416
nesting and wintering sites for waterfowl and
wildlife, and important natural erosion barriers 417
(cypress fringes, marshes, clay soils).
(C) Development shall not violate water and air 418
quality standards. 419
(D) Development shall not cause major or irreversible 420
damage to valuable documented archaeological or 421
historic resources.
(E) Development shall not measurably increase 422
siltation. 423
(F) Development shall not create stagnant water 424
bodies. 425
(G) Development shall be timed to have minimum adverse 426
significant affect on life cycles of estuarine 427
resources.
(H) Development shall not impede navigation or create 428
undue interference with access to, or use of, 429
public trust or estuarine waters.
(I) Development proposed in estuarine waters must also 430
be consistent with applicable standards for the 431
ocean hazard system AECs set forth in Section
.0300 of this Subchapter.
(3) When the proposed development is in conflict with the 433
general or specific use standards set forth in this 434
Rule, the CRC may approve the development if the
applicant can demonstrate that the activity associated 435
with tne proposed project will have public benefits as

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NR&CD COASTAL SANAGEMENT 7H .0200

identified in the findings and goals of the Coastal 436
Xrea sanagement Act, that the public benefits clearly 43.7
outweigh tae long range adverse effects of the project,
that-there is no reasonable and prudent alternate site 438
available for the project, and that all reasonable
means and measures to mitigate adverse impacts of the 439
project have beenlinc-orporated into the project design
and will be implemented at the applicant's expense. 440
These measures taken to mitigate or minimize adverse 441
impacts may include actions that will:
A) minimize or avoid adverse impacts by limiting the 443
magnitude or degree of the action; 444
B) restore tne affected environment; or 4U5
C) compensate for the adverse imEacts by replacing or J'e 0
providing substitute resources. .448
_(b) Specific Use Standards 450
1) Navigation Channels , Canals, and L3oa t Basins. 452
.Navigation channels, canals and . boat basins must be 453
aligned or located so as to avoid highly productive
shellfish beds, beds of submergent vegetation, or 454
regularly and irregularly flooded marshes.
12) Hydraulic Dredging 455
A) The 'terminal end of the dredge pipeline snould be 457
positioned at a distance sufficient to preclude 453
erosion of the containment dike and d maximum
distance from spillways to allow adequate 459
settlement of suspended solids.
B) edge spoil must be either confined on nign 460
Irround by adequate retaining structures or it the 461
material is suitable, deposited on beaches for
purposes of renourishment, with the exception of 462
(G) of this Subsection (b) (2) .
_J Q Confinement of excavated materials shall be ait 463
high ground landward of Eegularly and irregularly 464
flooded. marshland and with adequate sail
stabilization measures to prevent entry Of 46@
sediments into the adjacent water bodies or marsh.
D) Effluent from diked areas receivinj disposal troLa 466
hydraulic dredging operations must be contained Dy 4 67
pipe, trough, or similar device to a po in t
waterward of emergent vegetation or, wnere local 4u3
conditions require, telaw mean low water.
E) When possible, ettluent from -diked dispisal areaS 4b9
shall be returned to the area being dredged. 470
IF) A water control structure must be ins talled dt tae 471
intake end of the effluent pipe. 472

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IG) Publicly funded. projects will be considered by 473
review agencies on a case by case basis with 474
respect to dredging methods and spoil disposal.
H) Dredge spoil from closed shelltisa waters and 475
effluent trom diked disposal area s used when 476
dredging in closed shellfish waters shall De
returned tip the closed shellfish waters. 477
13) Drainage Ditches 478
JA) Drainage ditches located through any marshland 480
shall not exceed six feet wide by four feet deep 481
(from ground surface) unless tae applicant can
show that larger ditches are necessary for 482
adequate drainage.
JB) Spoil derived from the construction or maintenance 483
of drainage ditches through -regularly floodea 484
marsh must be placed landward of these marsh areas
in a manner that will insure that entry of 485
sediment into the water or marsh will not occur.
Spoil derived from the construction or maintenance 486
of drainage ditches through irregularly flooded
marshes shall be placed on non-wetlands wherever 487
feasible. Non-wetland areas include relic
dispo"sal sites.
.1c) Excavation of new ditches through high ground 488
shall take place landward of a temporary earthen 489
plug or other methods to minimize siltation t3
adjacent water bodies.
_JD) Drainage ditches shall not have a significant 490
adverse effect oa officially gesignated primary 4 9:1
nursery areas, productive snelltisix beds,
submerged grass, beds, or otner documented 9 2
important estuarine habitat. Particular attention
should be placed on the effects of freshwater 493
inflows, sediment, and nutrient introduction.
Settling-basins, water gates, retention structures 494
are exanples of design alternatives trLat may be
used to minimize sediment introduction. 495
14) Nonagricultural Drainage 496
_J A) Drainage ditches must be designed so that 498
restrictions ' in the volume or diversions of f low 499
are minimized to bota surface and ground water.
B Drainage ditches shall provide for the passage ot 500
migratory organisms by allowing @ree passaje ot 501
water of sufficient depth.
_JC) Drainage ditches shall not create stagnant water 502
pools or significant changes in the velocity of 503
flow .

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hR&CD CCASTAL dANAGESENT 7H .0200

JD) Drainage . ditches shall not divert or restrict 504
,water flow to important wetlands or marine 505
habitats.
15) Marinas 506
A) Marinas shall be developed on non-wetland sites or 508
in deep wafers (areas. not requiring dredging) and 509
shall not disturb valuable shallow water and
vetland habitat, except for dredging necessary for 510
access to high ground sites.
B.) Priva,tely-owned marinas which involve use of 511
public bottoms and waters snall not be permitted 512
unless adequate compensation is made to the public
by purchase of an easement from the state. These- 513
easements should be for a limited period. This@
requirement shall be met by snowing compliance 514
with state laws and regulations regarding
easements over public waters.
_(C) Marinas shall: (i) be designed to minimize use of 515
public waters by encouraging An appropriate six of 516
dry storage areas,- public launching facilities,
and berthing spaces; (ii) provide adequate pump- 517
out stations for wastewater disposal from boats;
and [iii) demonstrate tne implementatian at all 518
necessary means and measures to minimize thp
impact of pollutants likely to be emitted by th -a 519
aperation of the marina and attendant vessels U@on
the natural systems. 520
D) Marinas shall be designed to minimize adverse 5 2 1
effects on naviyation and public use of waters 522
hile allowing t h:e applicant adequate access to
deep waters.
w

16) Docks and Piers 52i
_(A) Docks and piers suall not signiticantly intertere 525
with water flo vs. 526
_j B) To preclude the adverse effects at snading marsh 527
vegetation, structures w nic h are built over 528
vegeta.ted marsh shall not exceed six feet in
widta, txcept that "T"s or platforms at the 529
vaterward end are not restricted to these
dimensions but cannot have a total area of: more 530
than 500 square feet.
_(C) The structure mu'st not present a navigational 531
nazard and must not, except where necessary, 532
extend any closer tnan 80 teet trom the edge ot a
federally maintained cnannel. Piers snall be 533
designed to minimize adverse effects on navigation

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NR&CD - COASTAL MANAGEMENT 7H .0200

and public use of waters, while allowing the 534
applicant adequate access to deep waters.
7) Bulkheads and Shore Stabilization Measures 535
(A) Bulkhead alignment, for the purpose of shoreline 537
stabilization, must approximate mean high water or 538
normal water level.
(B) Bulkheads shall be constructed landward of 539
significant marshland or marshgrass fringes. 540
(C) Bulkhead fill material shall be obtained from an 541
approved upland source, or if the bulkhead is a 542
part of a permitted project involving excavaton
from a non-upland source, the material so obtained 543
may be contained behind the bulkhead.
(D) Bulkheads or other structures below approximate 544
mean high water or normal water level for the 545
purpose of reclaiming land lost to erosion shall
be permitted only where there is an identifiable 546
erosion problem. Where such a problem is shown to 547
exist, only the area shown to have eroded in the
previous year from time of application may be 548
bulkheaded and filled.
(E) Where possible, sloping rip-rap, gabions, or 549
vegetation may be used rather than vertical 550
seawalls.

History Note: Statutory Authority G.S. 113A-107(a); 553
113A-107(b); 113A-113(b); 554
Eff. September 9, 1977; 555
Amended Eff. August 6, 1979; June 1, 1979. 556

.0209 ESTUARINE SHORELINES 558
(a) Rationale. As an AEC, estuarine shorelines, although 560
characterized as dry land, are considered a component of the 561
estuarine system because of the close association with the
adjacent estuarine waters. This Section defines estuarine 562
shorelines, describes the significance, and articulates standards 563
for development.
(b) Description. Estuarine shorelines are those non-ocean 564
shorelines which are especially vulnerable to erosion,flooding, 565
or other adverse effects of wind and water and are intimately
connected to the estuary. This area extends from the mean high 566
water level or normal water level along the estuaries, sounds, 567
bays, and brackish waters as set forth in an agreement adopted by 568
the Wildlife Resources Commission and the Department of Natural
Resources and Community Development [described in Regulation 569
.0206(a) of this Section] for a distance of 75 feet landward. 570

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135

NR&CD - COASTAL ISANNGESENT 7H . 0200

_Jc) Signif icance. Development within estuarine shorelines 571
influences the quality of estuarine life and is subject to the 572
damaging processes of shore front erosion and flooding.
11anatInment Objective. To ensure shoreline development is 5 73'
_Jd)
compatible with both the dynamic nature of estuarine shorelines 574
and the values of the estuarine system.
_Je) Use Standards 575
1) All development projects, proposals, and 'designs saall 577
substantially preserve and not weaken or eliminate 578
natural barriers to erosion, including, but not limited 579
to, peat marshland, resistant clay shorelinesf cypress-
gum protective fringe areas adjacent to vulnerable 58U
starelines.
2) All development projects, proposals, and designs shall 581
limit the construction-of impervious surfaces and areas 582
not allowing natural drainage to ouly so much as is
necessary to adequately service the major purpose or 583
use for which the lot is to be developed. Impervious 584
surfaces shall not exceed 30 percent of tne A@c area of
the lot, unless th-e applicant can show tuat sucn a 585
li.mitation will allow no practical use to be made of
the lot.
13) All development projects, proposals, and designs snall 586
comply with the following mandatory standards of the 587
North Carolina Sedimentation Pollution Control Act ot
1973:
_(A) All development projects, proposals, and designs 589
shall provide for a buffer zone along the margin 590
of the estuarine water which is sutticient to
confine visible siltation within 25 percent of the 591
butter zone nearest the land disturbing
development.
_(B) No development project proposal or design shall 592
permit an angle for graded slopes or till which is 593
greater. than an angle waicu can be retained by
vegetative cover 2r other adequate evosian-control 594
devices or structures.
C) All development projects, proposals, and designs 595
which involve uncovering more than one acre of 596
ldnd shall plant a ground cover surficient to
restrain erosion within 30 working days it 597
completion of the gradinj; provided tLat this
shall not apply to clearing land tor the purpose 59H
of forming a reservoir later tj be inundated.
4) Development shall not nave a significant adverse imp-Act 600
on Pstaurine resources. 601

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NR&CD - COASTAL MANAGEMENT 711.0200

[5) Development shall not signifcantly interfere with 602
existing public rights of access to, or use of, 603
navigable waters or public resources.
(6) No major public facility shall be permitted if such 604
facility is likely to require extraordinary public 605
expenditures for maintenance and continued use, unless
it can be shown that the public purpose served by the 606
facility outweighs the required public expenditures for 607
construction, maintenance, and continued use. For the
purpose of this standard, "public facility" shall mean 608
a project which is paid for in any part by public
funds.
(7) In those instances where ground absorption sewage 609
disposal systems may legally be placed less than 100 by 110
feet from the mean or normal high water mark of any
waters classified as S. A. such systems shall be 611
permitted only if:
(A) The nitrification lines are separated from the 613
seasonal high ground water by a minimum of 30 614
inches of suitable or provisionally suitable soil;
and
(B) It meets all the other applicable laws and rules 615
for ground absorption sewage disposal systems 616
adopted by the North Carolina environmental
management; and
(C) This Rule shall apply to ground absorption sewage 617
disposal systems installed after March 1, 1981. 618
(8) Development shall not cause major or irreversible 620
damage to valuable, documented historic architectural 621
or archaeological resources.
History Note: Statutory Authority G.S. 113A-107(b); 624
113A-108 (A); 113A - 113 (b) 625
Ett. September 9, 1977; 626
Amended Eff. June 1, 1980; October 23, 1979; 627
August 29, 1979; June 1, 1979. 628

N0RTH CAROLINA ADMINISTRATIVE CODE 12/01/80 7-18

737

SURVEY OF CAYID:-M COUIM paZe

PLIr_kSE COINTIYITE & RETURN TO JACK LEARY BY THANKSGIVING

Personal Characteristics

1. Are you presently a resident ofCamden County? Yes No

2. In which township do you live? (Circle One)
A.*South Mille B. Courthouse C. Shiloh

3. Educational Attainment (Circle One): A. Grammar School
B. Junior High C. High School - D. College

4. Occupation:

5. Which age group are you in? (Circle One)
A. 15-18*- B. 19-24 - C. 25-35 - D. 36-45
E. 46-55 - F. 56-64 - G. 65-over

6. Sex (Check): Male Female

7. Race: A. Caucasian B. Black C. Other

8. Give total number of years you have lived in county:

9. Family Size: 1 person; 2 to 4 persons@ 5 or more persons.
0

10.. Which of the following applies to you (Circle):_
A. own home B. rent home C. own other property in county

11. Marital status.(Circle One):
A. Single B. Married C. Widow or Widower D. Divorced

12 . Are you presently (Circle One): A. Employed B. Unemployed
C. Retired - D. Pull-time homemaker - E. Full-time Student

13. Where is most or all of your income derived (circle):
A. Camden County - B. Tidewater Virginia - C. Adjacent
Counties (specify) D. Other -

14. Have you ever attended a public hearing or meeting of the County
Board of Commissioners or County Planning Board. Yes No

15. How do you obtain most of your information about activities in the
county? ( Circle): A. Through newspaper - B. Through radio
C. Through TV D. By word of mouth E. Other -

continued on page 2

DEVEL-OF,,22a issuis
138
1. Please indicate the seriousness of each of the following issues
for your community using these re-sponses:

"No" means Not a problem in my community
"Slight" means A slight problem in my oommunity
'Yj6derate" means A moderate problem in my community
"Serious" means A very serious problem in my community

Extent of problem in your
ISSUES community
(check your response)

No Slight Moderate Serious
A. Swamp Drainage

B. Water quality iron,
acid, need for softners

C. Garbage collection and
disposal.

D. Development of second
or recreational homes..

E. Damage.-. to enviromen-a
tally, sensitive areas.

F. Adequency of commercial
Development.

G. Mobile Rome development.

H. Septic Tank failure.

I.. Availability of
adequate housing.

J. Amount of 1ndustrial
development.

K. Availibility of
Health Services.

L. Coversion of forested
land to agricultux-al
uses.

2. What do you like most about Camden County?

3. What do you think is the most significant problem in Camden County?

continued on Page 3

139
In your opinion is there a problem of insufficient or inaaequate
shopping facilities, and if so what kind would you like to see
here?'
Great Moderate Slight None
Don' t Eo-w
What kind?

C. DIRECTION FOR TEE ITTU

1. Are you pleased with the direction Camden County development is
taking?
Yes No
If so, please use this space to write the reasons you are pleased.
If not, please use the space to indicate the changes you would like
to see and your reasons for them.

2. What is your attitude.towards the following statements:

Agree Disagree
a. Environmental Strongly Agree Neutral Disag. Strongj
protection is as
important as
Economic develop-
ment.

b. More industry is
needed to supple-
ment existing
agricultural
base.

c. The area needs
more agricultural
related industries.

d. Natural resources
and wildlife
should be
protected.

e. Future growth
should be
concentrated in
existing co=-
unities (Example:
South Mills,
Shiloh),
continued on page 4

140
Agree Disagree
Strongly Agree N2utral Di S aig. Strongly
f. aistoric assets
in 'he County
should be
preserved.

g The area's

lands are very
i=-roz-tant and
must be protec-
ted or main-
tained from
inappropriate
developement,
residential,
co=erica.1 or
industrial

h. Land use plann-
ing is important
for promoting
appropriate types
of development.

Would you like to see more tourists come to Camden County?
Yes No

'What, if any, additional recreational facilities would you like
to see in this area?

What, if any, type of commercial establishments do you think should
be developed in this area?

In your opinion which of the following should the county adopt as its
policy for county population growth during the next 10 years.
(Circle One)

A. Remain the same size
B. Small increase
C. Substantial increase
D. Reduce Population

Specifically, what are any other issues or co .ncerns you have about
the future of Camden County?

continued on page 5

141

If you have questions concerning this questionmaire or the county's
Land Use Planning activities, please call Jack Leary, Camden Planning
Office, 335-4077, or Rex H. Todd, Planning & Design Associates, P.A.,
781-9004.

Thank you for your help. Please return this questionaire in the
enclosed envelope by Thanksgiving.

RHT:mcb

CHECKLIST FOR LAND USE PLANS 142
Data Collection and Analysis (Page 57) DISCUSSION ADEQUATE?
Page Yes No
Establishment of information base, including
1. manner in which data was assembled 58
2. statement of the major conclusion

Present conditions and economy, including
1. present population and ecomy analysis 59-66
2. impact of seasonal population

Existing land use analysis (page 67 - 93)
1. significant land use compatibility problems 89-91
2. problems and implications from unplanned 92
development
3. identification of areas experiencing or 93
likely to experience changes in predominant
land use
4. Areas of environmental concern 93
5. map of existing land use 68-79

Current plans, policies and regulations, including (94 - 105)
1. listing and summary of significant existing local 94-98
plans and policies
2. listing and description of the means for enforce- 99-101
ment of all local existing land use regulations
3. listing of all relevant federal and state 105
regulations (DNRCD) to provide)

Constraints: Land suitability (106-115)
1. physical limitations to development
a. hazard areas (man-made/natural 106)
b. soil limitation areas (shallow, poorly drained, 106
septic tank limitations)
c. water supply sources 110
d. excessive slope areas (over 12%) 111

2 fragile areas (min. req. 15 NCAC 7H) 111
3. areas with-resource potential 113

Constraints: Capacity of community facilities (Discuss)
1. existing water and sewer service areas 116-119
2. design capacity of the existing water and sewage 116-119
treatment plants, schools, and primary roads
3. percentage at which existing facilities are 116-119
utilized

Estimated demand

1. population estimate for the upcoming ten years 120
2. future land need discussion 121
3. community facilities demand (types of facilitie 123
and densities at which land is to be developed)

143

DISCUSSION OF POLICY IMPLEMENTATION ADEQUATE?
II. Policy statements ALTERNATIVES STATEMENT STRATEGIES Yes No
Page Page Page
Resource Protection Policies (page 7 - 27)
1. policies on types of uses appro- 7-12 12 12
priate within the locality's AECs

2. constraints to development 14-17 14-17 14-17

3. specific local resource develop- 18-21 18-21 18-21
ment issues relative to-15 NCAC
7H
4. other hazardous or fragile land 22-26 22-26 22-26
areas
5. hurricane and flood evacuation 27 27 27
needs and plans

Resource Production and Management Policies (page 28)

1. discussion of importance of 29-35 29-35 29-35
agriculture, forestry, mining,
fisheries and recreational resources

A. identification of most produc- 29-35 29-35 29-35
tive areas
b. discussion of values of pro- 29-35 29-35 29-35
tecting these areas
2. policy statements on:

a. productive agricultural lands 29 29 29-30
b. commercial forest lands 31 31 31-32
c. existing and potential mineral 33 33 33
production areas
d. commercial and recreational 35 35 35
fisheries
e. off-road vehicles 35 35 35
f. parks and outdoor recreation sites 34 34 34
Economic and Community Development Policies
1-discussion of types of development 36 37 37-51
which are cu be encouraged
a .discussion of redevelopment of 44 44 44
older areas/creation of new sub-
divisions, etc.
2. policies on types and locations of 38 38 38-39
industries desired

144

DISCUSSION OF POLICY IMPLEMENTATION ADEQUATE?
REQUIREMENTS ALTERNATIVES STATEMENT STRATEGIES Yes No
Page Page Page

3. policies on local commitment to 40 40 40
providing services to development
4. policies on types of urban growth 43 43 43
patterns desired
5. policies on redevelopment of
developable areas
6. policies on commitment to federal 45 45 45
and state programs in the area
7. policies on assistance to channel
maintenance and.beach nourishment
8. policies on energy facility siting 46 46 46
and development
9. policies on tourism or beach and
waterfront access

Continuing Public Participation Policies
1. discussion of means by which public 47 47 48-49
participation in planning matters
was encouraged in plan update
process
2. description of the means to be used 47 47 48-49
for public education planning
issues
3. description of the means to be used 47 47 48-49
for continuing public participation

Other Specific Local Issues for Policy
Discussion (from Attachment B)
Mobile Homes
2. Second Homes/Waterfront Development 51 51 51

145

III. Land Classification (page 53) DISCUSSION ADEQUATE?
Page Yes No

Land Classification 'Map Showing the (page 54)*
Following:
1. Developed land
2. Transition land
3. Community land

4. Rural land
5. Conservation land F5 77
6. additional breakdown of standard F0
5 classes.-(optional)

IV. Additional Requirlements

1. Preliminary draft must contain a
submittal letter.
2. Final draft must contain an approval =TBD
letter and a submittal level.

.3. All municipal plans must have a letter from
their county de-,ignating the municipality
as a CAMA planni,-@g Jurisdiction.

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SYNOPSIS OF THE LAND USE PLAN OF
CAMDEN COUNTY: 1980-1990

I. Why Plan for the County of Camden?

Located in the northeast corner of North Carolina, Camden County has remained
a slow-growing rural county over the years. Today, it features three principal
unincorporated communities, several smaller ones, and some newer subdivisions
which provide diversity to the quiet and agrarian nature of the County.
Additional reasons to plan for,the future stem from the County's population,
its environmentally sensitive areas'. and economic development intentions.

First, Camden County is the home of 5,829 persons, 67.50/10 of whom are white
and 32.5% non-white. Since 1970, Camden grew only 6.9% (376 persons), compared
to the state's rate of 15.5%. Projections show that the County can expect
a similar growth rate between 1980 and 1990. The fact that the County will
groo; 14Ll' faster than the state during that period distorts the fact that only
571 additional persons will reside in Camden County in 1990 than today.

Second, Camden County has a large amount of its official territory covered by
coastal wetlands, public waters, estuarine waters and shorelines that are
designated as Areas of Environmental Concern under the Coastal Area Management
Act. Additionally, vast areas of wooded swamps serve valuable nutrient collection
and wild-life habitat functions. Additionally, the Dismal Swamp State Park
covers thousands of acres, where the natural environment is particularly protected.
Demand for recreational and second homes continues to place considerable
pressure for development in environmentally sensitive areas. In addition to
resources that need protection, Camden County has vast acres of good farmland
and forested areas suitable for commerical production. A large peat concentration
along the northeastern boundary has potential for careful resource management.

Third, economic and community developmpnt issues persist in the County. Water
quality is one such issue. Softeners and other purifiers are applied to
individual wells, except in the one-third of the County served by the non-profit
South Mills Water Association. Therefore, expressly choosing a slow growth policy,
the County is justifiably interested in being selective among federal and state
programs which stimulate development. It is equally cautious about courting
industries that extract minerals and drain swamps.which deplete the water table
in the northern part of the County-and about undertaking any other actions
that could stimulate development. These times of high inflation, increasing
costs in gasoline, and rising unemployment may reverse commuter trends, however,
and cause pressures for concentrated commercial and residential development
patterns in the County.

Thus, the County's rural nature, population, environmentally sensitive areas,
and community and economic development intentions provide ample incentive for
the County to prepare to face the uncertainty of the 1980's. It is to this
end that the County has prepared this update of its Land Use Plan.

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II. Background..

In 1976, the County Board of Commissioners and its Planning Board and Growth
Advisory Board prepared its CAMA Land Use Plan for 1975-1985. That Plan
described existing conditions and patterns of land use, identified constraints
on land development, estimated future demands, and provided a plan for development
based upon a Land Classification systems. Particular attention was given to
environmental factors and public participation in the plan-making process.

In 1980., the Board of Commissioners received another grant under the Coastal
Area Mangement Act for preparation of the Land Use Plan for Camden County:
1980-1990.. This synopsis describes the purposes of this update, its land
classification scheme, the plan's information base, and briefly outlines the
responsibility for using the plan -- for using it to guide (not control)
decisions for the future.

III. Purposes of the Land Use Plan.

The plan, then is the pivotal statement of policy for use by local, state and
federal officials in decisions regarding Camden County's development over the next
10 years. It is'an important element in the state's plan for rational and
coordinated management of coastal resources.

The Coastal Area Management Act upon which this plan is based, works to protect
areas of statewide concern within the coastal area. In Camden County, Public
Trust Water, Estuarine Water, Estuarine Shoreline, and Coastal wetlands (marshes)
have been designated for such protection. The Act also, through its guidelines
for land use planning (15 NCAC 7B), sets forth important principles of land
use planning which have been emphasized in the land Ise Ilan of Camden County:
1980-1990.:
1. This plan has environmental protection as a priority in its own
right, while at the same time, advocates appropriate economic and
community development.
2. This plan is based upon real citizen participation in the planning
process, through the Board of County Commissioners, the Development
Advisory Committee, the citizen's survey and public meetings.
3. This plan has a strong action orientation. Policies are stated as
desired situations toward which the Board of Commissioners is
willing to work.
4. This plan is a sound basis for continuation of earlier work in
Camden County to improve the community for those who live and
visit there.
5. This plan is designed for continuous improvement as new information
becomes available. It is to be updated at least once every five
years, and more frequently, if required by the Board of Commissioners.

These purposes and principles are represented in the heart of the Land Ise Ilan
of Camden County,'Section II, which sets forth explicit policy statements for
the future. The goals of each major policy section are briefly listed below,
leaving the reader to gain detail, alternatives considered, and implementation
strategies from the Land Use Plan itself. The plan may be obtained by contacting
Mr. Jack Leary, Clerk, at 335-4077.

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Resource Protection Goals.

Safeguard and perpetuate the biological, social, economic and aesthetic
value of the County's Areas of Environmental Concern (coastal wetlands,
estuarine waters, estuarine shorelines, and public trust waters) in
accordance with CAMA regulations.

Protect areas subject to excessive shoreline erosion through encouraging
proper placement, density, and type of development in shoreline areas.

Protect areas prone to.severe flooding through undertaking a detailed flood
hazard study, revising the zoning ordinance, and considering establishment
of a floodplain ordinance.

Direct development with proper consideration of soils, through working
with the District Health Department regarding septic limitations and with
the Albermarle Soil and Water Conservation District for preliminary plat review.

Appropriately minimize the drainage and clearing of wooded swamps and
their conversion to other uses through classifying wooded swamps as "local
resource protection districts" in the zoning ordinance, developing permits
for drainage requiring setback of devel 'opment from wooded swamps, and
requiring adequate erosion control practice near them.

Protect remnant species and their habitats through establishing local
11resource protection districts" for such identified areas and allowing no
public works projects to be constructed within them, other than light
recreational facilities.

Guide development so that it protects historic and potential historic
properties and perpetuates the county's cultural heritage through enforcing
all applicable laws regarding archeological and historic sites, promoting
federal investment benefits to-private owners.of historic properties,
considering a local tax incentive, and considering a countywide survey
of historic sites and properties.

Minimize the adverse impact of man-made hazards upon humans and adjacent
development through a volunteer improvement/demolition program, use of
state building code, establishment of buffer zones near hazards, and
requiring clear warnings at such sites.

Increase readiness for safe evacuation from hurricane or flood disaster
through increasing awareness and conducting a practice exercise under
the County's hurricane evacuation plan.

149

Resource Production Goals.

Achieve maximum sustained yields from agriculturally productive areas through
improved local agricultural management techniques and limiting conversion
of prime agri cultural land to other uses.

Achieve maximum sustained yields from forest resources through education
of forest owners and establishing financial rewards and other incentives
for good management practices, limiting the conversion of wooded land
to other less productive uses, and establishing markets for local forest
products.

Develop geological-mineral and energy resources (sand, gravel and peat) in a
manner consistent with other development goals, particularly related to
AEC's and agricultural/forestation by developing local standards and instituting
a county severance tax, if possible.

Increase productivity of recreational resources, including touring through
identifying areas for development of tourist facilities, supporting
resurrection of the State Dismal Swamp Master Plan, supporting development
of public or private access points to public areas, and establishing
easements.

Economic and Community Development Goals.

Achieve level, types and patterns of economic and community development
which are consistent with the historic character of the County, raise local
employment levels, and otherwise contribute to the economic base, so
as to implement the Land Classification Map.

Encourage location of light industry which meets established performance
standards, near existing communities, and which does not use prime
aqricultural land.

Provide Siqnificant forms of local commitment toward providing services
to development including the South Mills Water Association, preparing
a preliminary capital improvements budget, identifying particular.state
and federal programs, and working to establish a "partnership" with private
land owners toward achievement of development goals.

Promote development in the pattern stipulated by the Land Classification
Map, in accordance with the zoning ordinance, and near existing development.
Details for patterns of residential, commercial, cultural-institutional-
recreational and aaricultural-forestry development patterns may be found
in the Plan, pages 41-43.

150

Promote redevelopment of existing communities, primarily those desionated
as "transition" and "community" on the Land Classification Map ' through
w7 participatinq in a regional development effort, obtaining technical
assistance in.working with local businesses, undertakinq selective measures
to improve the housing stock, designating local "revitalization areas"
for priority attention, and workin6 to have iocal legislators improve the
access to South Mills from Highway 17.

Selectively support state and federal programs related to Camden County
through engaging in a grantsmanship program.

Achieve appropriate levels of energy facilities through revising the
zoning ordinance to require a special use permit to construct such
facilities, and undertake a feasiblity study for a local gasohol production
co-op in the county.

Continuing Citizen Participation Policies.'

Provide opportunities for pa'i-iCicipation in the land use planning -recess
by residents individually and through representative groups.

Educate citizens about issues facing the area regarding protection,
production, and development policies through presentations to civic
groups, school classes, newspaper releases, and workshops.

Other Policies.

Accept the mobile home as a reasonable form of standard housing and make
its use in the County as appropriate as possible through providing for
mobile home development in designated areas and revising the zoning and
subdivision regulation provision for mobile homes so as to better -implement
plan recommendations.

Direct development of second home/waterfront development appropriately
through revising the zoning ordinance to promote concentration rather than
sprawl of such development, paying close attention to CAMA regulations
regarding estuarine shorelines, and developing' districts and construction
criteria for such development.

In the Camden County Land Use Plan, each of these policy directions
are prefaced with a narrative which integrates the best available data;
results from the citizen survey and field examinations, Advisory Committee
worksessions, and interviews with local, regional, and state officials;
examination of current plans; and consultant assessment. Under each major
section, alternative policies which the Planning Board considered are
presented, with the chosen policy and often a more specific statement of
intent (objective), and chosrn'implementation strategies.

151

IV. Land Classification.

The Land Classification Map for Camden County jurisdiction designated land
within the five standard categories of: developed; transition; community;
rural; and conservation, and presents special sub-categories for the rural
category (Map on page 54).

As shown on the Land Classification Map, there are no areas designated as
developed" tinc@ the County has no incorporated towns.

The purpose of the transition class is to provide for further intensive urban
development within the next'ten years on lands which are most suitable and that
may be scheduled for,provision of necessary public utilities and services.
As shown on the Land Classification Map, two areas have been designated as
" transition", South Mills (west) and Camden community (west). This means
that these two areas are especially targeted for public investment should
the County undertake such planning or conduct grantsmanship for such purposes.

The purpose of designating areas as "community" is to provide for clustered
land development to help meet housing, shopping, employment and public service
needs within the rural areas of the planning district. The areas of Camden
community (east) - Belcross, Shiloh, and Old Trap are designated as "Community".
As such, they represent the essence of the County's foremost,development pattern
policy, that of blustering development where it has traditionally been.

The purpose of the "rural" category as defined by CAMA, is to provide for
agriculture and forest management, mineral extraction and other low intensity
uses. In the Camden Land Use Plan these purposes are supported by the sub-
lit category of "rural production". A new sub-category of "rural-residential" was
created by the Board of Commissioners to reflect that the areas of Camden Point
Shores, Whitehall Shores, Taylor's Beach and Texaco Beach should develop
significantly slower and not in a mixed land use pattern (like that supported
in the "transition" category above). This modification of the standard categories
helps the county address one of its special issues, second homes/waterfront
development, as emphasized by CAMA.

Finally, the resource protection policies related to the County's salt marshes,
estuarine waters, estuarine shorelines, and public trust waters rendered them
to be desianated as "conservation", stipulating that no public funds, either
direct or lindirect,are to be used to encourage development of these areas.
All surface waters are designated as conservation.

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V. Information Base.

The remainder of the Camden County Land Use Plan provides the information base
upon which the aforementioned policy statements and Land Classification Map
were developed by the Advisory Committee and Board of Commissioners. Data and
analyses are presented regarding the population and economy; existing land use,
current plans, policies, and regulations; constraints to development imposed
by the land and by community facilities, and estimates of futuredemand.
The Appendix includes material related to the construction of that information
base, notably excerpts from the CAMA regulations and the citizen survey
questionnaire.

VI. The Land Use Plan of Camden County and You.

The Camden Coun@y Land Use Plan: 1980-1990., then, provides a sound basis upon
which future development, production, and preservation decisions can be made
within the context of the total community. It provides a visual pattern of
desired development, and contains a comprehensive array of action instruments
for carrying out its policies. Beyond that, the Plan is dependent mostly upon
the elected'officials,, as represented through the Board of Commissioners
and ultimately upon the citizens of the planning area to work towards its
fulfillment. Additionally, it is the responsibility of private developers
and state and federal governmental agencies to consult this plan for Camden
County as a statement by local citizens of the manner in which they want their
community to grow and prosper.

DATE DUE

GAYLORDINo. 2333 1PRINITEDIN U.S.A.

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