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L4.ANTIO AM OASTAL AREA MANAGEMENT ACT LAND USE PLAN 1981 FOR THE TOWN OF MANTEO, NORTH CAROLINA HD 211 N8 T69 COASTAL ZONE 1981 INFORMATION CENTER TOWN OF MAN TEO COASTAL AREA MANAGEMENT ACT. LAND USE PLAN August 1981 A LAND USE PLAN FOR MANTEO Developed By Manteo Board of Commissioners Planning and Zoning Board John F." Wilson, IV, Mayor Edward L. Greene, Chairman Jule D. Burrus David Enochs Delle'rva Collins Martha Hohmann H.A. Creef, Jr. Lila Schiffman Ann Gray Suzanne Scott Edward L.. Greene John B. Whaley Nevin Wescott@, Sr. Robin Reavis, Town Administrative Assistant Consultants; Randy Hester Billie Harper Brian Scott Developed in Accordance with The Coastal.Area Management Act of North Carolina August 1981 EXECUTIVE SUMMARY The 1981 Land Use Plan gives Manteo a guide for future development. It contains local goals and implementation strategies for accomplishing those goals, from land development policies to articulation of the lifestyles Roanoke Islanders' want to continue in the future. The Plan also strengthens the cooperative program of coastal area management existingbetween North Carolina and local coastal governments. Manteols Land Use Plan.is structured around a goal-setting process begun in the Fall of 1980. An area wide random survey taken at that time identified six major development goals that townspeoplewant to accomplish for their community. The 1981 Land Use Plan for Manteo is organizedunder those six goals to provide townspeople a clear, familiar outline for future dev elop- ment in cooperation with CAMA guidelines. 1. Overall Implementation Strategy A clear network of organizational responsibilities is import- ant to the overall implementation of Manteols Land Use Plan. Each of the six Planning Board members will undertake.the general management of a specific goal and its schedule of implementation policies. These responsibilities will include the coordination of individual and organizational interests who will help in various implementation phases of each goal. All six members, each with their respective activities, form a clear network of local involvement in the implementation of the Land Use Plan. 2. Surveys and Interviews with Townspeople These were found to be the most effective means of informing and involving area residents in the overall planning process. About 150 local residents were individually interviewed, school children grades nine through twelve of the Dare County public schools were surveyed, two newspaper questionnaires were run by the local newspapers, and a store front office was open for 30 hours a week to townspeople during September through November 1980 and throughout May-August of 1981. A. Newspaper Surveys. Two surveys were run during the planning year by the Outer Banks Current and by the Coastland Times. Both questionnaires dealt with general town goals relating to develop- ment over the next ten years. Long-term environmental issues such as commercial development adjacent to marshes, and the intensity of tourism desired, were raised, as well as more immediate problems such as water and sewer extensions to develop- ment within the Town's corporate limits.. Several major problems were introduced to the consultants. through those'surveys .including deteriorated street and sidewalk conditions and the absense of local services in the downtown district. A third survey, con- ducted in March of 1981, dealt with specific objects and places in Manteo that residents wanted to preserve. Townspeople were willing to change or trade-off some of those features for in- creased tourism in the community, but were adamant about protect- ing others. Those values were incorporated into the Land Use Plan through implementation policies. The town boat ramp, for example, had appeared in the previous surveys as an area needing maintenance and expansion. The March survey produced a more detailed guide for development of launch facilities because towns- people indicated they want to give a certain percentage of water- front docking facilities to tourist marina traffic if an improved boat ramp area. is retained for local use. Such results clarified the direction the Planning Board took in developing related implementation policies B. Interviews. Several interview projects were undertakenduring the planning year. The consultants initially interviewed town leaders, local organizations, businessmen, and other interested townspeople as an introduction to the needs and lifestyles in Mante o. Each person interviewed indicated areas of special con- cern on base maps prepared by the consultants. A composite of problem districts was compiled from those interviews. C. Random Surveys. A door-to-door goals survey was conducted in October of 1980. The comprehensive results served as a basis for formation of the six major town goals in the Land Use Plan. Two other surveys were administered in March 1981. The first, a youth survey of all Dare County high school students, grade s nine through twelve, supported the goals' survey indications of a need for a youth and recreation center in Manteo. The second survey analyzed hurricane damage prevention measures in @he com- munity, with a special emphasis on lack of adequate protection in low-income districts. All interview results contributed to the content of the. Land Use Plan, and the surveys involved residents in the project. Both provide effective management tools, giving local leaders a widely supported foundation:,from which to implement policies included in,the Land Use Plan., Format and analysis of results are available for public review at the Manteo Town Hall. 3. Quadricentennial Impacts The 400th anniversary of the landing of the Roanoke Colonies will--be celebrated between 1984 and 1987 on Roanoke Island., One project necessary to responsible implementation of Manteo's Land Use Plan has been an impact analysis of the Quadricentennial. Thefeasibility of commercial growth, capacity of facilities, and impact on existing local lifestyles has been analyzed in relation to the Quadricentennial as well as projected local residential and support facilities growth. The implementation policies for downtown development (Goal One), are partially dependent on construction and docking of the Elizabeth II, a ship typical of Sixteenth Century sailing vessels. The economic feasibility report is included in the appendices. 4. Mapping The impact of the Quadricentennial will affect areas sur- rounding the Town, but outside its present jurisdiction. The ecological unit of data gathering most important to Manteols planning process is the north end of Roanoke Island stretching from the Roanoke Sound Bridge to the north shore. The maps used include areas of cultural and environmental concern on the is- land's north end, including sites of potential archaeological significance. The Town will continue to seek one mile extra- territorial jurisdiction in an effort to preserve fragile natural and cultural resource areas, to maintain the existing rural residential character of the north end of Roanoke Island, and to plan more effectively for the impact of the Quadricentennial. Other mapping projects significant to the Land Use Plan include a proposed Manteo Plan for downtown revitalization, which incor-, porates a Quadricentennial facilities plan. The Master Plan utilizes a dredge spoil siteacross Dough's Creek for parking, recreation, and a visitor's center. Activities proposed in the Land Use Plan's implementation policies are also located on the map in the most economically feasible, available sites. The Master Plan map and a scale model of the Town's.waterfront de- velopment plans are displayed in the Manteo Town Hall for com- munity review. Maps of environmental quality, visual character, land availability, use patterns, pedestrian and traffic circula- tion, and proposed quadricentennial facilities for the downtown district are also displayed in the Town Hall. The LUP is designed so that the Town.can continue implementa- tion procedures following Coastal Resource Commission approval and adoption by the community. The following reports and other related materials are available at the Manteo Town Hall, Manteo, North Carolina: 1. Coastal Area Management Act Land Use Plan 1981 for the Town of Manteo, Manteo, North Carolina, 1980. Survey of Townspeople, Public Report One of a Plan for Manteo's Future Development, Manteo, N.C., 1980. 3. Theme for the Future, Public Report Two of a Plan for Manteo's Future Development, Manteo, N.C., 19 4. Guide for Development, Public Report Three of a Plan for -anteo's Future Development, Manteo, N.C., 1981. 5. Economic Analysis, Public Report Four of a Plan for Manteol-s Future Development, Manteo, N.C., 1981. 6. Roanoke Island's Past, Public Report Five of a Plan for Manteo's Future Development, Manteo, N.C., 1981. TABLE OF CONTENTS Introduction . . . . . . . . .. . . . . . 1 1. The Need for Coastal Ma@aie@e@t" 1 9 . . . . . . . . . .2. Federal Legislation: FCZMA . . . . . . . . . . . 2 3- State Legislation: CAMA . 2 4. The Purpose of Manteo's Land @s4 @1@n' * * : : ' * 5. Land Us*e Planning Guidelines for Manteo. 3 4 GOAL ONE: DEVELOP A NEW PURPOSE FOR THE DOWNTOWN 5 Discussion of Alternatives . . . . . . . . . . . . . . 5 Objective 1: Develop Low Key Tourism Downtown . . . . 5 Implementation Policies . . . . . . . . . . ... . . . 6 A. Overall Tourist Strategy . . . . . . . . . . . . . 6 B. A Theme . . . . . . . . . . . . . . . . . . . . . . 6 C. Interagency Forum . . . . . ... . . . . . . . . . 6 D. Publicity . . . . . . . . . . . . . . .. . . . . . . 6 E. Information . . . . . . . . . . . . . . . . . . . 6 F. Signage . . . . . . . . . . . . . . . . . . . . .. 6 Objective 2: Assist Existing Businesses by Recruiting New Businesses to Downtown 6 Implementation Policies * * * * * * 7 A. Business Association . . . . . . . . . . . . . . . 7 B% New Businesses . . . . . . . . . . . . . . . . . . 7 C. Downtown Inn . . . . . . . . . . . . . . . . . . . 7 D. Public Facilities . . . . . . . . . . . . . . . . 8 GOAL TWO: PRESERVE AND ENHANCE THE CHARACTER OF MANTEO THROUGH COMPREHENSIVE PLANNING FOR THE TOWN'S FUTURE . . . . . . . . . . 9 Discussion of Alternatives . . . -9 Objective 1. Upgrade the Appearance. of the Waterfront lo Implementation Policies . . . . . . . . . . . . . . . 11 A. Boat Ramp . . . . . . . . . . . . . . . . . . . . B. Waterfront Development .. . . . . . . . . . . . . . C. Boardwalk . . . . D. Community Facilitie; 11 E. Marina . . . . . . . . . . . . . . . . . . . . . Objective 2: Protect Residential Neighborhoods . . . 12 Implementation Policies . . . . . . . . . . . . . . . 12 A. Old Town Neighborhood . . . . . . . . . . . . . . 12 Natural Hazards . . . . . . . . . . . . . . . . . 12 C. Preservation Commission . . . . . . . . . . . . . 12 @D. Street Access to Downtown . . . . . . . . . . . . 12 E. Zoning Conflicts . . . . . . . . . . . . . . . . 13 F., Zoning Process . . . . . . . .. . . . . . . . . . 13 Objective 3. Minimize The Automobile's Impact on the Town . - . . * *I * * - * * ' ' * * ' * . . . 13 Implementation Policies . . . . . . . . ... . . . . . 13 A. Circulation . . . . . . . . , @e@s . . . . . . . . 13 B. Alternative Transportation Sys . . . . . . . 13 C. Separation of Town and Tourist Parking . . . . . 14 D. Development Patterns and Safety on Highway 64 14 Objective 4. Encourage Citizen Participation in Town Planning . . . . . . ... . . . . . . . . . . .. . 14 Implementation Policies . . . . . . . . . . . . . . . 15 A. Annual Review . . . . . . 15 B. Citizen Committee . . . . 15 C. Community Meetings . . . . . . . . . . . . . . . 15 D. Planning Team . . . . . . . . . . . . . . . . . . 15 E. Teenagers . . . . . . 15 F. Elderly . . . . . . . 15 G. Handicapped . . . . . . . . . . . . . . . . . . . 15 H. Low-Income and Minorities . . . . . . . . . . . . 16 I. Draft Review . . . . . . . . . . . . . . . . . . 16 J. Review of Goals . . . . . . . . . . . . . . . . . 16 K. Education . . . . . . . . . . . . . . . . . 16 L. Current Local Policies and R@gu*la'tions . . . . . 16 Objective 5. Blend Local and Visitor Activity . . . 1? Implementation Policies . . . . . . . 1? A. Annual Review . . . . . . . . . . . 1? B. Double Functions . . . . . . . . . . . . . . . . 1? Objective 6. Maintain the Friendly Small Town Atmosphere of Manteo 18 Implementation Policie; 18 A. Day Trip Visitors . . . . . . . . . . . I. . . . 18 B. Types of Development . . . . . . . . . . . . . . 18 C. Location of Development . . . . . . . . . . . . . 18 D. Timing of Development . . . . . . . . . . . . . . 20 E. Density . . . . . . . . . . ... . . . . .. . . . . . 21 F. Use of Open Space for Small Scale Agriculture 21 Objective Preserve Natural Resources and Rural Areas in and Around Manteo . .. . . . . . . . . I . . . 21 A. Estuarine Waters . . . . . . . . . . . . . . . . 22 Implementation Policies . . . . . . . . . . . . . 23 B. Coastal Wetlands . . . . . . . . . . . . . . . . 23 Implementation Policies . . . . . . . . . . . . . 24 C. Public Trust Areas . . . . . . . . . . . . . . . 24 Implementation Policies . . . . . 4 . . . . . . . 24 D. Estuarine Shorelines . . . . . . . . . . . . . . 25 Implementation Policies . . . . . . . . . . . . . 25 E. Fragile Natural and Cultural Resource Areas . . . 25 Implementation Policies . . . . . . . . . . . . . 26 III. GOAL THREE: IMPROVE COMMUNITY SERVICES TO RESIDENTS OF MANTEO . . . . . . . . . . . . . . . . . . . . . . 29 Discussion of Alternatives . . . .. . . . . . . . . 29 objective 1. Improve and Maintain Quality of Streets and Sidewalks . . . . . . . . . . . . . . . . . 30 Implementation Policies . 30 A. Inventory of Streets a@nd* S*id'ew*al*ks* 30 B. Priorities . . . . . . . 30 C. Sidewalks on dig6-ay- 64 .. . .. . . . . . . . . 30 D. Street Trees . . . . . . . . . . . . . . . . . . . 30 Objective 2. Provide Low Income Housing . . . . . . . 30 Implementation Policies . . . . . . . . . . . . . . . . 31 A. Community Development Block Grant . . . . . . . . . 31 B.- Neighborhood Association . . . . . . . . . . . . . 31 C. Self-Help Projects . . . . . . . . . . . . . . . . 31 Objective 3. Initiate Community Dog Control Policies 31 Implementation Policies . . . . . . . . . . . . . . . . 31 A. Public Information . . . . . . . . . . . . . . . . 31 B. Bad Dog . . . . . . . . . . . . . . . . . . . 31 Objective 4: Develop Vocational Training Opportunities 31 Implementation Policies . . . . . . . . . . . . . . . . 32 A. Vocational Training . . . . . . . . . . . . . . . . 32 B. Survey . . . . . . . . . . . . . . . . . . . . . . 32 Objective 5. Make Use of Existing Facilities and Local-Community Groups to Minimize Public Expenditures . . . . . . . . . . . . . . . . . . . . . 32 Objective 6. Expand and Improve Health Care Facilities . . . . . . . . . . . . . . . . . . . . . . 33 Implementation Policy . . . . . . . . . . . . . . . . . 33 Objective Improve the Quality of Law Officials 33 Implementation Policy . . . . . . . . . . . . . . . . . 33 Objective 8. Minimize Damage from Hurricanes and Floods . . . . . . . . . . . . . . . . . . ... . . 33 Implementation Policies . . . . . . . . . . . . . . . . 33 A. National Flood Insurance Standards . . . . . 33 B.' Hurricane Evacuation Plan . . . . . . . . . . 33 Objective 9. Develop Alternative Energy Sources . . . 34 Implementation Policies . . . . . . . . . . . . . . . 34 A. Information . . . . . . . . . . . . . . . . . . . . 34 B. 1986 Review . . . . . . . . . . . . . . . . . . . . 34 IV. GOAL FOUR: CELEBRATE THE QUADRICENTENNIAL OF THE FIRST ROANOKE COLONIES IN MANTEO . . . . . . . . . . . 35 Discussion of Alternatives . . . . . . . . . . . . . . 35 Objective 1. Build and Dock the "Elizabeth 116 in Manteo . . . . . : . . . . . . . . . . . . . . . . . 35 Implementation Policies . . . . . . . . . . . . . . . 36 A., Construction . . . . . . . . . . . . . . . . . . . 36 B. Location . . . . . . . . . . . . . . . . . . . . . 36 C. Waterfront . . . . . . . . . . . . . . . . . . . . 36 Objective 2. Observe Key Historical Events through Distinguished Ceremonies . . . . . . . . . . 3 6 Implementation Policies . . . 3? A. Events . . . . . . . . . . . . . 3? B. Location . . . . . . . . . . . . . . . . . . . . . 3? C. Coordination .. . . . . . . . . . . . . . . . . . . 37 Objective 3. Establish an Annual Anglo-American Folk Festival in Manteo . . . . . . . . . . . . . . . 37 Implementation Policies . . . . o o . . . . . . . . . 37 A. Cooperation . . . . . . . . . . . . . . . . . . . 3? B. New Commemorative Property . . . . . . . . . . . . 37 Vo GOAL FIVE. DEVELOP A MORE ECONOMICALLY VIABLE COMMUNITY . . . ... . . 38 Discussion of Alternative@ 38 Objective 1. Provide Opportunities for More Jobs Through Increased Commercial Development . . . . . . 38 Implementation Policies . . . . . . . . * . . . . . . 39 A. 'Commercial Development . . . . . . . . . . . . . . 39 B. Governor's Award . . . . . o . . . . . . . 39 C. Commercial Sites . . . . . . . . . . . . . 39 D. Urban Services . . . . . . . . . . . . . . . . . . 39 Objective 2. Stabilize and Diversify the Local Tax Base .. . . . . . . . o . . . . . . . . . .. . . . . 39 Implementation Policies . . . . . . . . . . . . . . . 39 A. Sales Tax Allocations . . . . . . . . . . . . . . 39 B. Small Industries . 39 C'. Available Building @i@e@ 40 VI. GOAL SIX: PROVIDE RECREATIONAL OPPORTUNITIES.FOR ALL MANTEO RESIDENTS .. . . . . . . . . . . . . . . 41 Discussion of Alternatives . . . . . . . . . . 41 Objective 1. Provide a Teen Center . . . . . . . . . 41 Implementation Policies . . . . . . . . . . . . . . 41 A. Survey . . . . . . . . . . I. . . . . . . . . . . 41 B. Shared Facilities . . . . . . . . . . . . . . . . . 41 Objective 2. Provide Parks and Recreation for Residents of all Ages . . . . . . ... . . .. . . . . . 42 Implementation Policies . . . . . . . . . . . . . .. . . 42 A. Waterfront .. . . . . . . . . . . . . . . . . . . 42 Bi Other Parks . . . . . . . . . . . . . . . . . . . 42 Objective 3. Provide a Beach or Other Water-Related Recreation Area . . . . . . . . . . . . . . . . . . . 42 Implementation Policies . . . . . . . . . . . . . . . 42 A. Acquisition . . . . . . . . . . . . . . . . 42 B. Plans . . . . . . . . . . . . . . . . . . 42 VII. LAND CLASSIFICATION . . . . . . . . . . ... . . . . . 43 1. Existing Land Use Map . . . . . . . . See Appendix A 2. Discussion of Land Classifications . . . . . . . 43 3. Land Classification Map . . . . . . . See Appendix A ,VIII. FEDERAL AND STATE REGULATIONS . . . . . . . . . . . . 47 APPENDIX A . . . . . . . . . . . Maps, Land Use and @and.-Classification . . . APPENDIX B . . . . . . . . . . . . . . . . . . . . . . . . . 53 Additional Base Data CREDITS INDEX CHECKLIST FOR LAND USE PLANS Data Collection and Analysis Establishment of information base including 1. manner in which data was assembled . . . . . 4, 19, 43 2. statement of the major conclusion . . . . . . . . 3, 43 Present conditions and economy, including 1. present population and economy analysis 19, 38, 39 2. impact of seasonal population . . . . . . . . 5, 19, 35 Existing land use analysis 1. significantland use compatibility problems 12, 13 2. problems and implications from unplanned development . . . . . . . . . . . . . . . . . . . . 27 3. identification of areas experiencing or likely to experience changes in predominant land use . . . . . . . . . . . . . . . . . . . 2? 4. areas of environmental concern . . . . . . . 23, 25, 2? 5. map of existing land use . . . . . . . . see Appendix A Current plans, policies and regulations incl,uding 1. listing and summary of significant existing local plans and policies . . . . . ... . . . 16 2. listing and description of the means for enforcement of all local existing land use regulations . . . . . . . . . . . . . . . . . . 17 3. listing of all relevant federal and state regulations . . . . . . . . . . . 46 Constraints: Land suitability 1. physical limitations to development a. hazard areas (man-made/natural) . . . . 11, 12, 28 b.* soil limitation areas (shallow, poorly drained, septic tank limitations) . . . . . . . . . . . . . . . . . . 20 C. water supply sources . . . . . . . . ... . . . . 20 d. excessive slope areas (over 12%) . . ... . . . . 28 2. fragile areas (min. req. .15 NCAC ?H) . . . . . . .. 25 3. areas with resource potential . . . . . . . 25 Constraints: Capacity of community facilities 1. existing water and sewer service areas . . . . . . . 20 2. design capacity of the existing water and sewage treatment plants, schools, and primary roads o . ... . . . . . . 14, 20, 32 3. percentage at which existing facilities are utilized . . . . . . . . . . . . . . 14, 20, 32 Estimated demand 1. population estimate for the upcoming ten years 19 2* future land need discussion . . . . . . . . . . . . 21 3. community facilities demand (types of facilities and densities at which land is to be developed) . . . . . . . .. 14, 21, 35,.11, 32 Policy Statements Resource protection policies 1. policies on types of uses appropriate within the locality's AECs . . . . 10, 24 2. constraints to development lb , 1@ 14, 20, 21, 45 3. specific local resource development issues relative to 15 NCAC ?H . . . . . 10, 23, 26, 2? 4. other hazardous or fragile land areas . . . 10, 24, 27 5. hurricane and flood evacuation needs and plans . . . . . . . . . . . . . . . . .. 10, 12, 33 Resource production and management policies 1. discussion of importance of agriculture, forestry, mining, fisheries and recreational resources . . . . . . 21, 42 a. identification of most productive areas . . . . . . . . . ... . . . . . . . . 21, 42 b. discussion of values of protecting these areas . . ... . . . . . . . . . . 21, 24, 42 2. policy statements on: a. productive agricultural lands . . . . o . . . . 21 b. commercial forest lands . . . . . . . . . . 21, 45 C. existing and potential mineral production areas . . . 28 d. commercial and recreation@l*fishe@i@s'@.'. 24 e. off-road vehicles . . . @8 Economic and community development policies 1. discussion of types of development which are to be encouraged . . . . . . . . 9, 14, 21, 43 a. discussion of redevelopment of older areas/creation of new sub- divisions, etc. 91 12 V 21 2. policies on types and locations oi industries desired 38 3. policies on local c@mm'i@m@n@ @o'pr'ov'id'inog* services to development . . . . . . . 9,, 13, 14, 27, 29 4. policies on types of urban growth patterns desired . . . . . oi . . . lo, 14, 21, 27 5. policies on redevelopment 12, 14, 21 developable areas . . . . . . 9, 10, 6. policies on commitment to federal and state programs in the area . . . . ... . 21, 24, 25 policies on assistance to channel maintenance and beach nourishment . . . . . . . 24, 25 8. policies on energy facility siting and development . . . . . . . . . . . . . . . . . . . . 34 9. policies on tourism or beach and waterfront access . . . . . . . . .. . . . . . 5, 41, 42 Continuing public participation policies 1. discussion of means by which public participation in planning matters was encouraged in plan update process ... . . . . . . . 9 2. @description Of the means to be used for public education on planning issues . .... . . . . 9 3. description of the means to be used for continuing public participation . . . . . . . . . 9 Special-issues 1. Annexation . . . . . . . . . . . . . . . . . . . . . 19 2. water/sewer limits . . . . . . . . . . 14, 19 3. downtown development . . . . . . . . . 38-40 4. Quadricentennial . . . . . . . . . . . . . . . . 35-37 5. Wanchese harbor development . . . . . . . . . . . . . 39 INTRODUCTION: NORTH CAROLINA COASTAL MANAGEMENT North Carolina's coastal management program is a joint state and local effort that protects, preserves, and insures the orderly development of the State's coastal resources. The program provides for (1) Areas of Environmental Concern that. require state level management and control and AEC's that are. managed.16cally through minor permit issuance.and (2)' local involvement in planning and regulating all other areas. This Land Use Plan represents the program's second provision of local involvement in Manteo. The North Carolina coastal management program is based on the State Coastal Management Act (CAMA) of 1974 and the Federal Coastal Zone Management@Act (FC.ZMA) of 1972. CAMA established the Coastal Resources.Commission (CRC) to principally manage the program and approve local CAMA plans. Local governments, including Manteo, are developing and implementing land use plans under CRC policy direction. Each plan is subject to final CRC approval in addition to local adoption. Manteols plan will help keep the community one step ahead of the development pressures that are so clearly visible in adjacent beach areas. It will guide the community toward a development pattern that is consistent with local goals, environ- mentally sound, and economically feasible. 1. THE NEED FOR COASTAL MANAGEMENT North Carolina's development has been tied to its coastal region since the.earliest days of European discovery and settle- ment. The State's population was centered on the coast during its first hundred years of development, and its coastal sounds .and rivers have continued to serve as entry ports and commerce routes. The coastal region has not, over the past century, experienced the same degree of growth as the Piedmont of North Carolina., Major transportation routes have shifted inland and with them population and economic centers of the State. But recent increases in tourism, second home development and industrial. .locations have created a new growth trend that is significantly -2- impacting North Carolina's coastal .region. This trend is largely responsible for the enactment of Federal, State, and local legislation to responsibly manage the coastal region's vast natural and economic resources, and to protect the resources essential to the area's long term vitality. 2. FEDERAL LEGISLATION: FCZMA The major objective of the Federal Coastal Zone Management Act of 1972 (Public Law 92-583) is to encourage coastal states to develop a management program that, guides the public and private use of lands and waters in the coastal zone. The Federal Act is administered by the U.S. Department of Commerce which is authorized to make grants to coastal states for d evelop- ment and administration of their program. In addition to pro- viding the major source of funds for program development and implementation, FCZMA offers federal agency consistency, specific planning, research, and acquisition funds. The'Governor of No Irth Carolina, in accordance with FCZMA, designated the Secretary of Natural Resources and Community Development to receive federal grants and to develop and implement the State's coastal management program. The resulting CAMA plan is aIn integration, by the Secretary of DNRCD, of state and federal statutory requirements. 3. STATE LEGI,SLATION: CAMA North Carolina's Coastal Area Managemlent Act of 1974 (Article 7, G.S. 113A) establishes a cooperative program of coastal area management between local governments and the State. The Program consists of two major stages, Phase I of planning and Phase II of implementation. The first phase, planning, involves three elements. (1) Land use planning required by CAMA. (2) The designation for sp ecial management of areas of environmental concern. (3) Pre- paration of the State Coastal Plan required by North Carolina's participation in the federal coastal management program. Most.of Phase I has been completed. Phase II, implementation, includes: (1) The permit program established in areas of environmental concern. (2) The local -3- implementation of land use plans in which Manteo is presently involved. (3) The various procedures for coordinating this comprehensive coastal program among the various federal, state, and local government agencies. CAMA requires that each land use plary be consistent with the State guidelines that have been adopted by the Coastal Resources Commission (CRC).(G.S. 113A-107 and 108).. 4. 'THE PURPOSE OF MANTEOIS LAND USE PLAN Manteo's Land Use Plan defines the lifestyle and type of development that local residents want.- It protects the well-being of Manteo by describing and organizing the following issues: 1) Federal, State, and local projects are coordinated by a com- prehensive development plan. The Land Use Plan,will prevent inefficiencies such as a local municipality ripping up newly. paved streets to put in sewer lines as a result of two pro- jbcts' implementation without cooperation. Time, monies, and manpower will be saved through the overall coordination of goals that the plan.provides. 2) The Goals defined in Mante'o's Plan clarify for State and Federal funding sources the Town's development intentions over the next ten years. Agencies can fund projects, more easily because of the Goals and land classification pro- vided by the Plan. By clearly outlining its development intentions, Manteo also reduces any outside impositi.on of programs or development inconsistent with its goals. The Town-can control its own development rather than remaining subject to non-local, interests. 3) The Land Use Plan clarifies community goals to local leaders through citizen participation programs. Specific strategies for accomplishing each goal are also outlined in Manteo's Plan. They can be implemented by local organizations and individual efforts. 4) The Land Use Plan@helps Manteo evaluate the costs and benefits of various development alternatives. Because Manteo's property tax is a major generator of revenues for -4- financing services and facilities, the Town must choose development patterns that maintain a strong market value of the land within its jurisdict ion. Through guiding such development decisions, Manteols Plan protects and improves the well-being of Town residents. 5) Manteols lifestyle and economy will be enhanced by its Plan's protection of the natural resources important to both residents and tourists. Marshes, for example, are an important visual amenity to residents and tourists, in add ition to being economically vital,to fish production in the area. The Land Use Plan for Manteo will be updated and revised every five years in accordance with local changes and the State's Land Use Planning Guidelines. 5. LAND USE-PLANNING GUIDELINES FOR MANTEO The State Guidelines provide an outline that local govern- ments, including Manteo, can u.se in identifying local land use problems and issues, developing alternative strategies for solving the issues, formulating policies, and selecting methods of implementation. All local plans include (1) a summary of. data collection and analysis, (2) an existing land use map, .(3) policy discussion, and-(4) a land classification map. Manteo has organized its plan to include theabove minimum requirements. Its major emphasis supports.the CAMA requirements for a citizen participation program. The format for Manteols Land Use Plan follows a goal based citizen participation program in an effort to@use a community planning form already familiar to Town residents. The plan is structured around,a goal setting process begun in a Fall 1980 survey. It identified six major develop- ment goals that townspeople want to accomplish for their com- munity. The Land Use Plan for Manteo is organized under those six goals to. provide townspeople a clear, familiar outline for achieving their goals in cooperation with the CAMA. GOAL ONE: DEVELOP A NEW PURPOSE FOR THE DOWNTOWN GOAL ONE DEVELOP A NEW PURPOSE FOR THE DOWNTOWN DISCUSSION OF ALTERNATIVES' Manteo recognizes that its past function as a mercantile center for the Outer Banks needs to be altered if the Downtown district is to have significant economic value. Alternative functions considered include the following: 1. The Town could develop an historically,based, low-key tourism program designed to attract day visitors from the beaches. The program would be organized to bring economic benefits to Manteo,within minimal disruption of existing lifestyles. 2. The Town could develop a tourist oriented, Elizabethan theme village similar to Old Salem, North Carolina or Williamsburg, Virginia. Financial benefits from tourism would result, but local lifestyles would be sharply altered to accommodate visitor activity. 3. The Town could accept the slow decline of its downtown district and concentrate development efforts in other parts of the municipality. 4. The Town could assist existing businesses in the Downtown .by recruiting new specialized.busine .sses to the district. Additional governmentaland professional offices could also be recruited.to revitalize the downtown. ,ALTERNATIVE SELECTION The Town selects alternatives one and four. A discussion of each follows in the order of importance to the townspeople. OBJECTIVE 1: DEVELOP LOW KEY TOURISM DOWNTOWN. Because.the Outer Banks already brings tourists to the area,. Manteo is in an ideal location to attract day visitors from the flow of tourists currently passing through the Town. Tourism can provide the economic boost needed to make downtown commercial development profitable and thereby support.local services other- wise unavailable to a town Manteols size. Sixty-five percent of the residents surveyed favor developing a tourist attraction in the downtown, and most want historically based attractions in Manteo that capture rather than destroy the Town,s existing character. Suggestions include a small inn, the Elizabethan ship, and shops where arts, crafts, and Outer Banks' traditions .are demonstrated. IMPLEMENTATION POLICIES A. Overall Tourist Strategy: The tourism plan will be based on the celebration of the 400th Anniversary of the Roanoke Colonies (See Goal 4), the building and docking of an Elizabethan Ship on the Manteo Waterfront, and the develop- ment of an interpretive "living/learning" center that stresses the lofty dreams and everyday life in the Manteo area for the past four centuries. A discussion of altern- ative tourist plans and a detailed explanation of the, low- key, historically based strategy that was chosen are con- tained in A Plan for the Next Phase of Manteo's Development. The implementation of the plan contained therein is the major means of fulfilling this policy. B. A Theme: The Town will develop its tourism program around the theme "Come Sit on our Front Porch, Let Us Tell You of the Dreams we Keep." The choice and use of this phrase are explained in A Theme for the Future.. C,...Inter-Agency Forum: The Town's representatives to, the. Dare .@@ounty Tourist Bureau will continue to advocate the county- wide and inter-agency adoption of a tourist strategy that is historically honest, low-key, participatory and respectful of the environmental limitations of the area. D.@ Publicity: The Town, in cooperation with the Bureau and other agencies, will regularly publicize public events and activities. Those efforts will be focused on the historic- ally based events initiated by the Quadricentennial Celebra- tion. Town-publicity releases will stress the history of the area, the participatory strategy of a living history like the ship, "Elizabeth II,11 and the theme "Come Sit.on Our Front Porch and Let Us Tell You of the Dreams We Keep." E. Information: A town-.9ponsored volunteer committee charged with printin&and distributing weekly information guides will provide tourist oriented maps and activity schedules that will be available at Town Hall, the Dare County Tourist 'B@ireau, area motelp, restaurants and local media publications. F. Signage: The Town,,with assistance from the State Department of Transportation, will provide clear signage of 64 marking major entrances to the downtown area. The signs will be in accordance with Town zoning regulations covering signs and- outdoor advertising structures, and the traffic circulation patterns established to accommodate increased tourist Visitation during the Quadricentennial activities. OBJECTIVE 2. ASSIST EXISTING BUSINESSES BY RECRUITING NEW BUSINESSES TO DOWNTOWN As businesses and services have moved from the downtown, Manteo,has lost its sense of a central district. The downtown and Highway 64 both provide necessary functions, yetneither ful- fills all the community needs. Sixty-four percent of the residents surveyed think there is a need for new business in Manteo. Thirty-five percent think a department storeis needed most. There is concern, particularly among the elderly, about the lack of some basic services within the walking area of the downtown. Forty-eight percent of the townspeople surveyed say stores moving from downtown is a serious or very serious problem, and 49% say the lack of a grocery store downtown is a serious or very serious problem. But the downtown cannot compete with_ Highway 64 for basic needs businesses. To provide the services townspeople want will require recruiting specialty stores down- town that satisfy both tourist and local needs. IMPLEMENTATION POLICIES A. Business As sociation: In the Fall of 1981, the Town will sponsor,@ forum for the establishment of a business association whose main purpose is support of existing, and encouragement of new businesses in Manteo. Projects initiated by the business association will include business recruiting, the development of an investment company, exchange of promotion strategies with other organizations, and the development.of cooperative arrangements between businesses on Highway.,64 and the new specialty stores downtown. @,B. New Businesses: Business recruiting, coordinated by the newly formed business association, will be partially based on the economic feasibility study for the town's Quadricentennial facilities. High priority will be given to local resident needs in the downtown area such as convenience foods stores and banking. But local priority must'be measured with the Town's dependence on tourism and governmental functions down- town. Specifically, the Town Administrative Assistant will provide technical assistance regarding lacal preferences, economic feasibility and site planning in locating new businesses downtown and on Highway 64. An emphasis will be placed on recruiting specialty stores and professional offices. Special attention must be made to overcome the haphazard development along Highway 64 by clusteringdevelopment to share parking, curb cuts and signage. Technical assistance to potential businesses and to existing ones doing renovation will be provided by the Town Administrative Assistant to help businesses and the public save money, reduce visual clutter, and minimize the danger of congested strip development. In addition *, by providing water and sewer along.Highway 64,, the Town will further encourage clustering of strip development. C. Downtown Inn: With .increased tourism, a downtowninn will become more feasible. Manteo presently houses an average of, 300 visitors per day in its hotel and,tourist home facilities. These units remain near full capacity throughout the tourist season, so an expansion of hotel facilities will be necessary to meet increased tourist needs. A @O room inn in the down- town district will increase the Town's hotel capacities to serve 4@0-500 people per day. This will be sufficient because of the primarily day-visitor focus of Manteo's development. An-inn in turn will increase tourist trade on the waterfront and encourage use of marina facilities by boat traffic. The .Town Administrative Assistant will advertise the economic feasibility study, identify sites for interested developers, and promote the overall plan which will give the downtown inn a unique waterfront'location as part of a village atmosphere. D. Public Facilities: Manteols development of public facilities related to the Quadricentennial, (Goal 4) and Downtown revitalization (Goal 2, Objective 1), will increase downtown property values and make land presently unused or underused more attractive to investors. This will attract new businesses to the district. The Town will encourage new business-.develop- ment by the construction of public facilities to attract more tourists. GOAL TWO: PRESERVE AND ENHANCE THE CHARACTER OF MANTEO THROUGH COMPREHENSIVE PLANNING FOR THE TOWN'S FUTURE. GOAL TWO PRESERVE AND-ENHANCE THE CHARACTER OF MANTEO THROUGH COMPREHENSIVE PLANNING FOR THE TOWN'S FUTURE DISCUSSION OF ALTERNATIVES No problem facing Manteo is more difficult than preserving the positive aspects of the existing Town as its very reason to be changes dramatically. No single problem received as much attention when alternative policies were considered. The following represent the various strategies considered as means,of enhancing the existing character of Manteo: 1. The Town could encourage the demolition of older residential areas for use as commercial properties on and near Highway 64 by zoning and modifying street patterns. This has short-term economic benefits. 2. The Town could protect residential areas by establishing.a Preservation Commission, encouraging infill development in the older sections of town and through zoning. 3. The Town could upgrade the waterfront.with improved launch, boardwalk, and marina facilities. 4. The Town could develop a balanced transportation plan relying on a variety of modes to minimize the impact of the automobile. The Town could divide tourist activities from resident activities by providing separate facilities thereby avoiding the disruption and congestion associated with the tourist season.. 6. The Town could continue to rely on the automobile as a single mode of transportation as it.has in the recent past. The Town could provide public facilities with multiple functions for use by local people and tourists.. 8. The Town could encourage citizen involvement in action pro- grams that rely on self-help activities. 9. The Town could encourage citizen involvement in education pro- grams to inform them about the land use and community development plans. 10. The Town could involve citizens in an ongoing process of evaluating the impacts of tourism andimplementation of the proposals included herein. _10- 11. The Town could develop a growth pattern with a suburban density. 12. The Town could maintain its friendly small village atmosphere with infill development and clustering where urban services are already provided-. 13. The Town could preserve the natural resources and rural areas in and around Manteo by continuing to oppose piecemeal re- zonings at the county level. 14. The Town could seek extraterritorial jurisdiction to maintain the fragile natural areas, and the rural density of develop- ment immediately outside the town.. This would be a more efficient and economical growth pattern in the.long run if, developed in conjunction@with infill and clustering mentioned above. 15. The Town could prohibit development in flood prone, areas. 16. The Town could develop a flood damage prevention plan to minimize the waterdamage to waterfront facilities in its village center. l?. The Town could devqlop an energy conservation'plan that relies on low technology and self-help programs to reduce energy consumption in-Manteo. ALTERNATIVE SELECTION The Town chooses to pursue alternatives two, three, four, seven, eight, nine, ten, twelve, fourteen, sixteen, and seventeen. Detailed discussions of each alternative follows. OBJECTIVE 1: UPGRADE-THE APPEARANCE OF THE WATERFRONT Currently, Manteo's strongest natural asset is its connection to the Water. To preserve and enhance Mante .o's qualities for both townspeople and visitors, this connection must be maximized. Thirty-three percent of the people surveyed believe that the rundown waterfront is a serious or very serious problem, 53% feel there is a need for maintenance, expansion, or beautification of the Town launch and dock facilities, and 63% see the need for a boardwalk along the waterfront As a problem. At a-recent town meeting, a great deal of interest was expressed over developing the Town's marina facilities for both local residents, and visitors. Improved marina facilities will act as a visitor attraction and add an economic boost. Waterfront development of a boardwalk and marina facilities will strengthen the area's importance as a major asset to Manteo. IMPLEMENTATION POLICIES A. Boat RaU: Over half the residents interviewed expressed tne neea for maintenance, expansion and beautification of town launch facilities. Because there are only three public boat launches presently on the Island, including the badly deteriorated one in Manteols jurisdiction downtown, the Town will repair the boat ramp in conjunction with boardwalk improvements in the Summer of 1981., Additional needs for town launch facilities including an alternative ramp location and parking for twelve cars and trailers will be included in the waterfront development plan presently being drawn. This will improve the availability of public access to Shallowbag Bay. B. Waterfront Development: The Town will increase public water- front development by receipt of easements, gifts of land and purchase, and development of key parcels (see C. Boardwalk, below) within a block of Queen Elizabeth Avenue. Two oil storage tanks on the waterfront form a man-made hazard. The owner, Roanoke Oil Co., has agreed to relocate the tanks out- side the downtown district The proposed public facili@ies include an exhibition hall, an interpretive center, a visitor center, parking, a location for the@"Elizabeth II" and a boat building center. These should, in turn, attract mixed commercial and residential development. Provision for such mixed uses presently exists in the Manteo Zoning Ordinance (Section 7.04, Permitted Uses). C. Boardwalk: The Town will construct a boardwalk along the Towntown waterfront that links public facilities, commercial structures, parks and parking lots. The boardwalk project, funded by the Town and the Heritage Conservation and Recreation Service (HCRS) will form a primary pedestrian route for recreation and shopping between the town launch and the Creef/Davis Marsh. Construction will begin in 1981. D. Community Facilities: Facilities built specifically for the Quadricentennial will be utilized by the Town after the Celebration. The Interpretive Center, for example, will be organized for visitors to "learn by doing" activities. In addition to activity around the "Elizabeth II," smaller boats of local historical importance such as the Creef boats, (Sharpie, Shallowbag Shadboat and Speedboats) will be used for waterfront tours and fishing/crabbing demonstrations. Through such activities tourists will observe and experience the lifestyles, past to present, of Outer Bank's culture. The Center's focus would shift after 1987 to primarily local activities,such as craft demonstrations and fishing. A Plan for the Next Phase of Manteols Development lists these facilities and appropriate functions. E. Marina: The Town will improve its marina facilities for both -12- local residents and tourists by repairing damaged structures and improving bath facilities in accordance with A Plan for the Next Phase of Manteo's Development, the Zoning Ordinance and requirements of the Federal @lood Insurance Administration. The Town Board will investigate ways to improve the operation of the Marina. These include leasing the facility to a private operator, sponsoring a boating club and/or increasing docking fees. A decision will be made on the operation of the facility by 1982. OBJECTIVE 2: PROTECT RESIDENTIAL NEIGHBORHOODS People in Manteo are very attached to their town and their neighborhoods. When interviewed, 65%,of the people expressed quiet, peaceful small town qualities and social interaction as the best things about their neighborhoods. Thirty-four percent ,of the people surveyed found protecting neighborhoods from com- mercial development to be a serious or very serious problem. As Manteo attracts more visitors, the Town must be careful to.pre- serve its neighborhoods, which are so important to residents. IMPLEMENTATION POLICIES A. Old Town Neiahborhood: As.commercial development increases on Highway 64 and in the downtown area, the residential .,neighborhoods between the two business districts, bounded on the south by Fernando Street and the north by Ananias-Dare Street,.will be threatened. The Town will protect the quality presently existing in those neighborhoods through the Zoning Ordinance (Section ?.01-7.05), and adherence to A Plan for the Next Phase of Manteols-Development. B. Natural Hazards: Several neighborhoods need precautionary strategies against natural hazards. Most of the Old Town neighborhood and downtown business district are located in a 100 year flood hazard area,outlined on the Federal Flood Insurance flood rate map. The businesses and homes along Fernando, Agona and Old Tom Streets are flooded every few years by seasonal wind tides. The Town will supply inform- ation on safety precautions.and Federal Flood Insurance Standards at Town Hall. The Town building inspector will adviseresidents and notify them of construction.not adhering @to Federal Flood Insurance standards. C. Preservation Commission: The Town Board of Commissioners form, during 1982, an ordinance which establishes a historic properties commission under the enabling legislation enacted by the North Carolina General Assembly * The Com- . mission.will initially study the Town's older neighborhoods that are impacted by commercial development downtown and on Highway 64. Their study will include an inventory of significant structures, residential and commercial, within Manteo's jurisdiction. D. Street Access to Downtown: Following traffic circulation studies by the State Department of. Transportation and the -13- planning team in 1981, certain streets will be designated as major and.minor entrances to the downtown waterfront dis- trict. The specific streets, and necessary improvements, will be planned and mapped by 1982. The major criteria for designation will be protection of residential neighborhoods. The-evaluation process outlined in Goals for Manteo (Goal 2, Objective 4-A) will include annual citizen r;view of traffic circulation in town and its impact on surrounding neighborhoods. E. Zoning Conflicts: Neighborhoods and individual residences adjacent to development on Highway 64 are potential areas of conflict because they are located within a B-2 general busines@ zoned district of Manteo. Although some residents may prefer to sell their property because of increasing land value, and relocate, the Town will insure their protection through enforcing buffer zone requirements set forth in the Manteo Zoning Ordinance (Section 7.05-D) and by continuing to support efforts to establish a one-mile extra-territorial jurisdiction (Goals for Manteo, Goal 2, Objective 7). The residential areas adjacent to downtown will be rezoned residential and/or residential/commercial to insure their protection from adjacent business districts. F. .,Zoning Process: Proposed changes that affect residential -neighborhoods within Manteo's jurisdiction must be reviewed by the Planning Board to insure accordance with zoning law and the neighborhood preservation strategies outlined in A Plan for the Next Phase of Manteo's Development. OBJECTIVE 3: MINIMIZE THE AUTOMOBILE'S IMPACT ON THE TOWN When asked about the most serious problems in Mante'o,. residents surveyed cited automobile related probl'ems most frequently. Fifty-one percent found downtown parking to be a serious or very serious problem; and 45% found traffic,:congestion to be a.serious or very serious problem. If not carefully plan- ned for, increased visitor traffic will make this already serious problem intolerable. IMPLEMENTATION POLICIES A. Circulation: The Town will develop-a traffic.circulation plan based on 1980-61 studies done by the North Carolina State University Design Team for the Quadricentennial Feasibility Study and the 1980-81 studies by the North Carolina Depart- ment of Transportation. B. Alternative Transportation Systems: Manteo will continue to support the use of alternative.transportation systems in Dare. County. Specifically, the Town.will contribute $2,500 to the summer bus shuttle in a joint effort of local Dare County municipalities. To encourage the use of bicycles in Manteo, the Town will sponsor a yearly Bike Inspectio.n Day to inform residents of -14- safety habits and bike maintenance. At-this or a separate yearly event, a bike rider's award will be presented to the townsperson who has best exemplified the safety and con- servation habits of bike transportation. C. Separation of Tourist and Town Parking: The traffic circula- tion plan will specify a separation of town and tourist park- ing acilities to accommodate resident needs such as access to the Post Office and Town.Hall. Downtown re*sidents, especially those residing in mixed commercial/residential structures, will be provided a separate parking lot, so that on-street spaces downtown presently used for long-term parking can be regulated,as short-term spaces.. Alternative siies for long- term,parking designation include the town lot beside Bicenten- nial Park and the town lot adjacent to the boat ramp. See A Plan for the Next Phase of Manteo's Development for further- guidelines regarding town and tourist circulation,patterns. D. Development Patterns and Safety on Highway 64: Highway 64 supported an average of 9,400 cars per day in 1980 which is well within its design capacity for 21,600 vehicle trips per 24 hours. Increasing tourist traffic will not 'exceed1the road's design capacity over the next ten years but increasing tourist traffic will aggravate congestion problems. As Highway 64 be comes increasingly congested, the Town Board will minimize traffic hazards by encouraging cluster development using the following means: providing.only water and sewer to businesses within the town limits, enforcing-the sign ordinance, reducing the-total parking requirements for clusterdevelopments, pro- tecting non-commercial areas of Highway 64 with the existing zoningordinance and opposing any commercial development on the north end.of Roanoke Island outside the area presently serviced', by water and sewer. OBJECTIVE 4: ENCOURAGE CITIZEN PARTICIPATION IN TOWN PLANNING, Man@eo,lresidents have expressed concern for the future of their town and recognition of its heritage. Forty-six percent of those responding to the'survey would like to be more involved in planning Manteo's future. Sixty percent of those surveyed feel, that the need..for town planning@is a problem. It is important that all town residents have equal opportunity to participate in land use or other public decisions that will affect them. Towns- People should be involved in Manteo's planning process by projects such as self-help programs, news media coverage, periodic surveys, Mobile exhibitions, planning workshops, task-oriented committees, volunteer services for the Quadricentennial, public meetings and other activities aimed at building community equality, respect, solidarity and spirit. The overall aim of the town planning pro- cess.is.to transfer the control of that process from outside pr o- fessionals to townspeople and their technical*assistants. -15- IMPLEMENTATION POLICIES A. Annual Review: As Manteo makes policies for the future, its citizens will be continuously involved. Every fall, after the tourist season, questionnaires will be sen 't to each Manteo household to evaluate the positive and negative effects of tourism that year. Within a month of sending the question- naire, a town meeting willbe held to discuss the previous seasonis impacts and determine the plans for the upcoming year. The meeting will be held well in advance of the up- coming tourist season to allow for policy changes. Results of the questionnaire and town meeting will be carefully monitored from year to year. The planning team will provide the initial questionnaire format for Fall 1981, and the questionnaire will be included with Manteo's October water bill. A volunteer committee, from the Planning Board, will be responsible for administering and tabulating the question- naire. The Town Administrative Assistant will prepare the summary and make preliminary recommendations to be discussed by the Planning Board and approved by the Town Board. B. Citizen Committees: For each of Manteols six major goals, a citizen commit , headed by a member of the Planning Board, will be set up to follow through on objectives and implement- ation policies. The Town will involve elderly, black, handi- capped, teenage, and other special interest groups in the implementation of policies and facilities specifically related to their needs. The Town will also set a goal of recruiting 400 volunteers, in honor of the Quadricentennial, to form the citizen committees. The "Manteo 400" will coordinate their activities with each other and with the 400th Celebration schedule. C. Community Meetings: In addition to requ 'ired public hearings, community meetings will be held to discuss Manteo's goals and alternative policies. Citizen input will be encouraged monthly through questionnaires on specific issues; newspaper coverage of planning decisions related to Manteo's Land Use Plan and the 400th Anniversary; and information concerning the planning process available in Town Hall. D. Planning Team: The Planning Team will live in Manteo April- They will work in a storefront office, as they August of 19 did in 1980, open to residents' questions and input at least 40 hours per week. E. Teenagers: A questionnaire will be distributed to high school students in an attempt to determine the special needs of teen- agers in the Manteo area and to involve them in the community development process. F. Elderly: The planning staff will meet with the XYZ Club and,Golden Age Club to assess the needs of the elderly and.to involve them in the plans for the Quadricentennial,Celebration and waterfront development. G. Handicapped: The.facilities being planned for the Quadri- centennial Celebration will provide access to the events and the waterfront for handicapped citizens. Special attention _16- is being given to their needs in the first phase of the waterfront to guarantee that someone in a wheelchair can move f rom, one of the boardwalks to the other. H. Low-Income and Minorities: 'Low income and minority citizens typically do not pai@T"icipate in community planning because they do not have the time and financial resources to do so. A Plan for the Next Phase of Manteo's Development'details the ways to involve these groups in housing rehabilitation, com- munity improvement projects and job location. This plan will be implemented by 1984. I. Draft Review: Draft copies of Goals, Objectives and Implement- ion Policies for Manteo will be circulated to local officials for review. Revised copies will be.distributed to all residents in Manteo, and applied to the Land Use Plan for Manteo.. J. Review of Goals: The Town will conduct an annual review.of tEe Goals for Manteo report to insure the effectiveness of each policy strategy. The Planning Board will evaluate at that time the effect of the policies on land use changes that have occurred or may be anticipated. The Board shall either makea finding that no changes are necessary or make recom- mendations for necessary changes. K. Education: The Town considers this type of active involvement the best process for public education on planning issues. In addition, the Town will publish several public reports to be distributed to each household on critical planning and implementation strategies. This will begin in the Summer of 1981. L. Current Local Policies and Regulations: Manteo is organizing local development regulations into a central file that is easily accessible to townspeople and local officials for re- @view and cross referencing. The Town Administrative Assistant will compile all land use codes into a planning file system. located in Town Hall. Development plans will be more responsibly reviewed by the Planning Board and involved citizens, if Manteols policies are cataloged in one source.. Properties that fall under two codes, for example, such.as mobile homes which are control- led by both the Town Code and Flooding Ordinance, will be easier to understand. The following listing includes.existing plans and policies having significant implications for land use: 1) Dare County Land Use Plan was developed in 1975 in accordance with the CAMA. It is presently being updated by Lee Downey of William and Works-as required by the CAMA. 2) Town of Manteo Zoning Ordinance was prepared bythe Manteo Board of Commissioners, and enacted in 19?9. A building regulation was added to the Zoning Ordinance in 1980 giving the Planning Board and Zoning Board the power of technical review of all construction in the Town re- quiring a building permit. 3) The Town Code consists of detailed regulations. It in- cludes explicitly defined governing policies concerning the following Town issues: Animals and Fowl, Buildings, Civil Emergencies, Demonstrations, Parades an Picketing; Fire Protection, Garbage, Refuse a Vegetation, Licenses, Offenses--Miscellaneous,,",-'bli/CY Department, Streets, Sidewalks and Public Place,; '@ Taxation and Fiscal Provisions, Taxicabs, Trailers and Trailer Parks, Vehicles and Traffic, Water, Sewer, and Sewage. 4) The Flood Ordinance includes restrictions on construction in low areas and on *special structures such as trailers. Hazard Flood Areas are identified by the Town's Flood Insurance Rate Maps * 5) Planned Unit Development. Central control mechanisms have been established for land development.. They are outlined in Section VIII of Manteo's Zoning Ordinance. 6) Manteo Community Development Program. Manteo applied in 1979 and 1980 for C.D. Block Grant funding but did not qualify. Repair of 23 deteriorated units and removal of 11 dilapidated units was recommended in last year's application, as well as installation of sewer lines that the Town is now completing to all annexed areas., The Town of Manteo enforces its plans and policies through the general ordinance making powers granted to its Board of Commissioners by the State. The Board of Commissioners has exercised this power by enacting a comprehensive zoning ordinance, town code, and by 1982, a land use plan under CAMA guidelines. The Board of Commissioners designated a six- member Manteo Planning Board as the planning agency to review and administer Manteols Zoning Ordinance. One member, the zoning administrator, has all the necessary authority to administer and enforce the Zoning Ordinance and State Build- ing Code. (Article IX, Section 9.01, Manteo Zoning Ordinance). OBJECTIVE 5. BLEND LOCAL AND VISITOR ACTIVITY Despite the overwhelming support forthe development of tourist attractions downtown and celebration of the Quadri- centennial in Manteo, residents are concerned that the Town not be taken over by tourists. 'A s Manteo makes a commitment to tourism, it is essential that local lifestyles be carefully protected. The image the Town conveys should be honest; it should be clear that townspeople wish to share their town with.visitors, not give it to them. IMPLEMENTATION POLICIES A. Annual Review: The satisfaction of permanent town residents WIll be of primary importance in planning resident and visitor interaction. The annual review of each tourist season procedure outlined in Goals for Manteo (Goal 2, Objective"4-A) will insure a continuous monitoring of town/ tourist relationships. B. Double Functions: 'Certain facilities proposed for the 400th -18- Anniversary will be designed to accommodate both town and tourist activity. The purpose of the immediate double function of many facilities is to insure their usefulness to the Town after the close of the Quadricentennial. The pro- posed tourist interpretive center, for example, can also function as a Town Community Center. Demonstrations of local crafts and some local events could be scheduled in con- junction with tourist oriented activities. The boat building center for the "Elizabeth III' will also include constant interaction of tourists and local shipbuilders. All pro- posed 400th facilities and alternative town uses are outlined in A Plan for the Next Phase of Manteols Development. Each proposed activity and public facility in the Town will be reviewed by the Planning Board to evaluate its consistency with guidelines for tow@i/tourist interaction set forth in the Manteo Development Program. OBJECTIVE 6. MAINTAIN THE FRIENDLY SMALL TOWN ATMOSPHERE OF MANTEO When asked about Manteols best things, residents surveyed expressed friendly people, small town qualities, and quality of living most frequently. As one resident noted, "I'm not sure what it is, but there's a magic about this place." As Manteo makes a commitment,to share this magic with visitors, townspeople must be certain that the qualities so important.to their lifestyle remain. See the Economic Analy'sis for.a detailed.listing of recommended tourist and other retail services. IMPLEMENTATION POLICIES A. Day-trip Visitors To maintain its present small town quality, Manteo will develop facilities designed primarily for day visits. Tourist facilities and related functions that pre- vent daily residential activity such as post office visits or.parking access to governmental offices are not acceptable to Town development objectives. Types of Development: Manteo will permit single family, multi-family, commercial and institutional land uses within the town under the terms of the Zoning Ordinance and natural constraints to, development outlined in the Land Use Plan for Manteo. C.. Location of Development: The town encourages controlled growtho reuse of downtown, infill of undeveloped lots within the present town limits, and clustered strip development on Highway 64, consistent with the Town Zoning Ordinance and the Land Use Plan. Commercial, public, multi-family-, or single- family attached developments shall be planned and located so as not to interfere with surrounding existing residential development. To guarantee this development pattern, the Town will continue its efforts to exercise extra-territorial jurisdiction (see ? below). Manteols dlevelopment plans should promote the growth and development of the Town.as a predominantly single-family residential community. Population trends and resulting Town development patterns were studied to determine future growth projections, and to decide the type and amount of development preferred by townspeople. Manteo's population growth from 1940 to 1980 was analyzed, but the Town's growth patterns were too unstable to utilize the DOA straightline projection model. Manteols population loss and gains over the past 20 years, however, have paralled-those of the State as a whole, and the State's population is expected to steadily increase. Under the advice of the DOA State Demographic Section, (Francine Ewing), Manteols population projections were based on the growth trends occurring over the past ten years. The increase of tourism and resulting economic and support population growth patterns are a major influence on Manteols development policies. The number of overnight visitors to Dare County increased from.30,000 per day in the 19?5 peak tourist season to 3?,500 visitors per day in the-1980 peak tourist season, an increase of 20%. The average, two year interval increase of Dare County tourist expenditures is 194% from 1965 to 19?9. Most of this expenditure applies to beach areas, but its potential forms the ba@is for Manteols low-key.tourism policy of attracting day visitors from nearby locations. Based on economic, tourist and resident growth trends, a 9.8% population increase per five year period has been estimated to 1995. Year Population Increase Additional Residents 1980 132? 9.8% 1985 '1392 9.8% + 65* 1990 1463 9.8% + ?I 1995 1541 9.8% ?8 MANTEO POPULATION PROJECTIONS 1980-1995 *Increase is figured on the 664 population base preceding the 1979 population increase from annexation. Population Source: U.S. Census Bureau Manteo almost doubled its population from annexation in 1979. The Town does not anticipate annexation during the five year planning period, and will protest development of any outlying areas to an intensity requiring urban services. The Town will continue to provide water and sewer services only to facilities within the Town's corporate limits. _20- Soil limitations will also dictate location of development. The predominant soil in the downtown waterfront and Highway 64 areas is the Onslow series. It is moderately well drained and the seasonal high watertable is between 18 to 36 inches below the soil's surface. Limiting factors for development on this soil are flooding by seasonal wind tides and a limit- ing surface layer of loamy sand that should be removed or dis- persed where it occurs densely. Septic limitations are a minor constraint to development because of Town sewer extensio ns to those areas. Another commonly occurring soil in Manteo's planning area is the Hobonny series. The Hobonny soils include the marsh areas bordering Shallowbag Bay. These soils are- severely limited for most uses other than wildlife habitat. Pockets of Madeland (pumped or dredged soil material) exist adjacent to the Hobonny soil areas along the southeastern border of the Town's jurisdiction limits. Trailers and houses are being built on these pockets because of the Bay access, but constraints to dwellings, streets and septic tank filter fields are severe. The Town will provide water and sewer extensions to all sites within its jurisdiction which will help reduce the dangers of groundwater contamination. D. Timing of Development: Timing of development will parallel that of Quadricentennial activities and the capacity of the Town to provide water and sewer services to additional pro- j6cted development. Water and sewer capacities will not be expanded to a capacity greater than that required to accom- modate projected permanent or peak populations nor will the Town allow development that will exceed the Town'sability to provide adequate water and sewage treatment. A water and sewer facility feasibility study for Manteo was conducted in 1976. Water supplies for Manteo were projected to be "unlimited" once the Town hooked up with the Dare County water system, which it did in the Summer of 1980. The Town recognizes that the long term reduction of ground water quality and supply is a critical problem to the entire coastal region. Manteo will continue to monitor the quality and supply of its water resources and will avoid potential local contamination of groundwater by checking soils and watertable levels in hazard areas and dump sites. The Town will also continue to support the State of North Carolina's @efforts to minimize depletion of, contamination of, and salt water intrusion into the groundwater supply. The capacity of Manteols sewer treatment facilities is not as clear. There is no metering system for the existing facilities but the system is estimated to treat 250 thousand gallons of . sewage in a 24-hour period. The Town has experienced problems with the system overflowing into Shallowbag Bay in recent years, but this problem should be alleviated when improvements presently underway increase the capacity in 1981. The Town estimated that the facility would have 20% of its capacity underutilized when these improvements are finished,' but serious questions were raised about the plant's capacity to treat the waste water that will be produced by the growth anticipated to accompany the Quadricentennial. The Town Board will have an outside consultant update the capacity of the sanitary sewer system in 1981. -21- In addition, the Town of Manteo opposes the use of ocean out- fall as a means of sewage disposal because of cost,.environ- mental degradation, and the inappropriate growth patterns that. could result from such a system. The Town believes such a system would destroy the lifestyle and environmental quality that supports the Outer Banks through tourism. The Town will pass a resolution to this effect in 1981. E. Density: The density of development shall be consistent with that allowable in the Town Zoning Ordinance. Infill develop- ment strategies will be applied within the following specifications: Residential density in the Old.Town neighborhood between Highway 64 and Old Tom Street will not exceed that allowable under the present R-5 district designation, which allows a densit@ of 15 people per acre. Population density in surrounding residential neighborhoods will not exceedthat of six people per acre. Manteo's present density of 3.7 people per gross acre is projected to increase to only 4.6 people per acre by 1990, which.is well within the above density criteria. It is estimated that 20% of the existing commercial buildings in Manteols downtown waterfront district are mixed commercial/ residential. An increase-of that percentage is not to exceed a balance of,50% mixed commercial/residential to commercial structures. The Zoning Ordinance, Section 7.04, will be amended to include the above mixed-use requirements. It is estimated that 5% of the existing residential units in Manteo are multi-family. An increase of,that percentage is not to exceed a balance of 10% multi-family units in all residential areas. The Zoning Ordinance will be amended to reflect this requirement in 1982.. F. Use of.Open S@ace for small scale Agriculture: Although there are no significant tracts of agricultural orcommercial forestry land in Manteo's jurisdiction, many older residential districts in Manteo retain fragments of small scale farming such as gardens and poultry yards. Those plots, and similar spaces in more recent neighborhoods form a potential source of food production for townspeople. The Town, in an effort to inform residents of the economic gains of neighborhood agriculture, will contact the Dare County Extension Agent and,horticultureagents from North Carolina State University to coordinate information programs.and publications for Town residents. The.Town will also modify ordinances and sections of the Town Code that are inconsistent with these and other' programs that are important for the community to become more self-sufficient. OBJECTIVE PRESERVE NATURAL RESOURCES AND RURAL AREAS IN AND AROUND MANTED People in Manteo are not only fond of their neighborhoods and their town,, but-of the rural and natural character of their part of the island. When asked about the best things in Manteo, those surveyed frequently responded with such things as location, -22- climate, quiet, isolated and private. They enjoy being close to undisturbed natural areas. Of all the features in town, marshes rank as the second most important to Manteo residents. As Manteo develops in the future, it is critical that natural areas and the rural character of the north part of the island be protected. Among the most important natural resources on Roanoke Island are the areas of environmental concern which are specifically described in the State Guidelines for Areas of Environmental Con- cern (subchapter 7H). The Manteo area contains the following com- ponents of the estuarine system: estuarine waters, coastal wet- lands, public trust areas, and estuarine shorelines. A. Estuarine Waters Description: Estuarine waters aredefined in G.S. 113A-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 thedividing 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." In the Town of Manteo, this includes Shallowbag Bay and Dough's Creek. Significance:. 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 c,oastal area which are comprised of estuarine dependent species such as menhaden, flounder, shrimp, crabs, and oysters. Thes,e species must spend all or some part of their life cycle within the estuarine waters to mature and reproduce. Of the ten leading species in the commercial catch, all but one are dependent on the estuary. -23- Commercial and sports fisheries of singular importance to Dare County are dependent upon the protection and sustained quality of the estuarine areas. IMPLEMENTATION POLICIES FOR ESTUARINE WATERS The Estuarine waters of Shallowbag Bay and Dough's Creek within the Town of Manteo will be conserved. Bulkheading to prevent erosion and'the building of piers or wharves where no other feasible alternative exists may-be-allowed within estuarine waters provided that such land uses will not be detrimental .to the biological and physical estuarines functions and public trust rights. Such proposed projects must include aZtatement of impact on existing navigation channels, shoreline erosion potential, spoil deposition below mean high tide, changes in water circulation patterns, changes in water quality standards, and effects on shellfish waters. The development of additional navigation channels should be prohibited.because of the existence of an adequatesystem. B. Coastal Wetlands Description: Coastal wetlands are defined 'as any salt marsh or other marsh subject to regular or occasional flooding by tides, including wind tides (whether or not the tide waters. reach the marshland areas through natural or artificial watercourses), provided this shall not include hurricane or tropical storm tides. Significant marshlands exist on the east side of Dough's Creek and in large. areas edgingthe northeast and southeast boundaries of Shallowbag Bay. There is the notable exception of approximately 20 acres near the old Ice Plant site; this area is higher land with pine woods, and an,open, sandy field. A small, but.significant, pocket of mar8hland exists directly southeast of the Agona-Fernando Street intersection. The marshlands are composed mainly of Juncus ro6merianus (black needlerush) and Typha spp. (cat-tail). Significance: The expanse of wetlands bordering the south side of Shallowbag Bay is the northern portion of wh at is considered perhaps the finest Juncus roemerianus (black needle- rush) dominated marshes"remaining in the state. The following survey taken just south of Highway 64 by the North Carolina Natural Heritage Program (Department of.Natural Resources and Community Development), probably applies to the portion bordering Shallowbag Bay. Nearly pure stands of -24- Juncus roemerianusZEleocharis obtusa cover about ?09/o of the marsh area. Other communities present are: Eleocharis parvula/Lilaeopsis chinesis in submerged areas, Spartina p.atens windrows, Pluchea purpurascens/Scirpus supp. on the marsh edge, and the transitional community, Spartina cynosuroides/scirpus@ robustus/loblolly pine/cedar.covered hummocks or "Islands" intersperse the marsh' The Roanoke Island marshlands provide an important resting area for migrating animals and birds going between the main- land and the outer banks., The wetlands lying south of Shallow- bag Bay provide important nesting, wintering, and/or feeding grounds for Black Rails, Barn Owls, Least Bittern, Marsh Wren and Clapper Rails. IMPLEMENTATION POLICIES FOR COASTAL WETLANDS All significant marshlands within the jurisdiction of Manteo will be preserved. Sufficient sites already ex@st for water access without breaching marshlands. Location of water- related facilities such as boat ramps, piers, docks and marinas in marshlands must be deemed to have no significant impact on the estuarine ecosystem by CAMA staff. C. Public Trust Areas Description: Public trust areas are defined as ocean and estuarine waters plus coastal streams, tributaries and lakes in which the public may have rights.of navigation, access or other public@trust rights, i.e. all surface waters. In Manteo these include Dough's Creek and Shallowbag Bay. Significance: Theipublic has rights to these areas, including navigation and recreation. In addition, these areas support valuable commercial and sports fisheries, have aesthetic value, and are important resources for economic development.. IMPLEMENTATION POLICIES FOR PUBLIC TRUST AREAS Any land use which.interferes with the public right of navigation, or other public trust rights which the public may be found to have in these waters, shall-not be allowed. The building of piers, wharfs, marinas, or bulkheads to pre- vent erosion shall be allowed in appropriate locations pro- vided that such uses will not be detrimental to the biological and physical functions and public trust rights. The develop- -25- ment of navigation channels in these public trust waters are not essential because of those already existing, and will therefore be prohibited. Other proj6c.ts which would directly or indirectly block or impair existing navigation channels, increase shoreline erosion, deposit spoils below mean high tide, cause adverse water circulation patterns, violate water quality standards, or cause degradation of shellfish waters are generally considered incompatible with the management of public trust wat'ers. The plans to build a bridge across Doughl's Creek as part of the Quadricentennial facilities must be carefully designed and implemented so as not to do undue environmental damage. D. Estuarine Shorelines Description: Estuarine shorelines are all shorelines abutting estuarine waters inland 75 feet from highwater. These are especially vulnerable to erosion, flooding or other adverse .effects of wind and water and are intimately connected to the estuary. Because of its location on Shallowbag Bay, Manteols future land development needs to be.compatible.with both the dynamic nature of estuarine s.horelines and the values of the estuarine system. Significance: Dev6lopment within es,tuarine.sho.relines influences,the quality of estuarine life and is subject to the damaging processes of shore fro.nt.erosion-and.flooding. IMPLEMENTATION POLICIES FOR ESTUARINE SHORELINES 1. All development projects, proposals; and designs in Manteo shall substantially preserve and not.weaken or eliminate natural barriers to erosion. 2., The Town will comply with the Use Standards set forth in subchapter ?H of the State Guidelines for Areas of Environmental.Concern (Tl5:0?H.0200)i. E. Fragile Natural and Cultural Resource Areas Description: Fragile natural and cultural resourceareasare, defined as areas containing environmental, natural or cultural ..resources' of more than local significance in which uncon- trolled or incompatible development could resultinmajor or,irreversible damage to natural systems or cultural re- sources, scientific, 'educational, or associative values, or aesthetic qualities. Because of the historic archeological significance of the "Lost Colony" site and uncertainty of original settlement location, potential sites are being investigated by archeological research teams. The downtown -26- village of Manteo.is located in cl ose proximity to Shallowbag Bay, surrounding woods, and marshes, creating a valuable aesthetic experience. Significance: Fragile coastal natural resource areas are generally recognized to be of educational, scientific, or cultural value because of the natural features of the particular site. Fragile coastal cultural resource areas are generally recognized to be of educational, associative, scientific, aesthetic, or cultural value because of their special importance to our understanding of past human settle- ment of and interaction with the coastal zone. Their import- ance serves todistinguish the designated areas as significant among the historic architectural or.archaeological remains i.n the coastal zone, andtherein establishes their value. IMPLEMENTATION POLICIES FOR FRAGILE NATURAL AND CULTURAL RESOURCE AREAS IN MANTEO 1. The Town recognizes that much of its residential and tourism attraction is dependent on the closeness and accessibility of natural areas. The Town will retain unobstructed views to Shallowbag Bay and adjacent marshes during its waterfront development project. These natural features juxtaposed with'the village create a uni ,que and valuable aesthetic experienc-e. Construction on sites near AEC or fragile areas will utilize views to and protect their existence. The proposed shipbuilding site on Fernando Street, for example, abuts a small marsh pocket. A plan has been drawn for the site.that includes an observation boardwalk near the marsh.- The walk provides people a view into the marsh anddiscourages them from walking through it., 2.. Although the area within Manteo's present jurisdiction has a low potential for historic remains, the Town will support efforts to preserve areas of high potential for historic archeological remains all over Roanoke Island through participation in county planning decisions which affect those sites. In addition, the history of the area is heightened by the experience of crossing the bridge over Croatan Sound and entering a completely wooded area. This aesthetic experience evokes associations with the original colony and is a significant part of the experi .ence of the Fort Raleigh Site and the Town of Manteo. It will be especially important during and after the Quadri- centennial Celebration to preserve this experience. The Town will oppose any changes in land use that will alter the aesthetic, educational and associative value of the drive along Highway 64 from Croatan Sound to the Town. -2? - In an effort to preserve these above stated fragile cultural resource areas, to maintain the existing rural residential character of the north end of Roanoke Island, and to better plan for the commemorations and growth to accompany the Quadricentennial Celebration, the Town of Manteo will request that the County grant the Town extraterritorial jurisdiction. This area directly affects Manteols development. The natural and cultural resources therein significantly influence the Town, and together, with the Town, form a logical ecological uniti Detailed planning for this'area is absolutely essential for the Town to implement the Quadricentennial Celebration; The Town Planning Board will co-sponsor with the County a public meeting to dis- cuss this and other proposals related to planning for the Quadricentennial. The Planning Team has identified areas surrounding Manteo which could be easily damaged or destroyed by inappropriate or poorly planned development. All fragile areas existing on the north end of Roanoke Island have been located on a 1"-10001. scale map. Fragile areas outside Manteo's jurisdiction but important to its planning process include: .a. Significant marshlands Significant marshlands located on the east shore of Dou'gh's Creek and in large areas edging the northeast and southeast boundaries of Shallowbag Bay. Policy statements have been developed to protect the plant communities.and wildlife habitats.presently existing "in'those areas. (Goal 2, Objective, coastal wet- lands) If Manteo is able to exercise its one mile extraterritorial jurisdiction, the above areas will be within its planning control. b. Cultural Resource Areas Because of the archeological significance of the Lost Colony site and uncertainty of original settlement location, potential historic settlement sites are being investigated by archeological research teams. The Planning Team is developing a Potential Cultural Resources map under the guidance of David S. Phelps, consulting archaelogist at UNC-Greenville. Town and Coun 'ty cooperation will be essential in protecting areas of high archeological and cultural significance. c. Prime Wildlife Habitats An active Osprey nesting site located in the marsh northeast of Dough's Creek has been mapped. The Osprey as a species of special concern and is classi should be protected. If the Town gains a one mile extraterritorial jurisdiction, the birds' nesting area will fall within its planning control. d. Complex Natural Areas An elliptical landform located just southwest of the Manteo Airport appears to be a Carolina Bay formation. Its location on Roanoke Island is unusual and warrants further investigation. The Bay's Lynn Haven soils composition make it a potential wetlands area subject to CAMA protective regulations. -28- e. Prominant High Point The unusual elevation of the Mother Vineyard area is due to a relic dune system that was active during the life 6f Trinity Inlet. The site is valuable because of its example of the stabilization and re- sulting plant community progression of a dune system. The area is also culturally important as a potential Lost Colony site. Sir Walter Raleigh's colonists used Trinity Inlet to approach Roanoke Island and may have used the area for settlement of defensive out- posts. The relic dune slopes at Mother Vineya 'rd and north to the Lost Colony Park site exceed 12% in several sections, posing constraints to development, and forming a highly erodable shoreline. The Town will oppose, through letters and other coordination efforts with Dare County, any development of these areas that threatens their significance, or adversely impacts estuarine resources. f. Ocean Hazard Areas Manteols location on Shallowbag Bay is five miles from any*,oceanfront'shoreline. Policy statements on the use of off-road vehicles and other measures relevant to Ocean.Hazard Areas are not applicable to the Town. g. Mineral-Production 'No lotential,mineral production sites exist in Manteols P corporate limits, or in.the land area mapped for the Town's land classification recommendations. Policy statements on mineral production are n6t applicable to the Town.. GOAL THREE: IMPROVE COMMUNITY SERVICES TO RESIDENTS OF MANTEO GOAL THREE IMPROVE COMMUNITY SERVICES TO RESIDENTS OF MANTEO DISCUSSION OF ALTERNATIVES From the 1980 Goals for Manteo survey of townspeople a list of community services most needing improvements was made. The following are the alternatives considered: 1. The Town could increase its property tax rate to provide new sidewalks and streets and increase the maintenance of existing ones. 2. The Town could continue its cooperative arrangement with the State to upgrade and maintain streets and sidewalks on the basis of a high priority list. 3. The Town could apply for a Community Development Grant to upgrade the low income housing in California. 4. The Town could initiate its own self-help program to upgrade the low income housing in California. 5. The Town could enforce its dog control ordinance by hiring a dog empoundment 'officer. 6. The Town could provide public information about community solutions for dog control. The Town could develop a vocational training program. 8. The Town could make specific suggestions to the School Board to encourage them to offer courses to help poorly skilled residents get jobs in the area. 9. The Town could recruit additional health care personnel to the area. 10. The Town could request the local health care officials to advertise health care alternatives available to local r *dents. esi 11. The town could increase its property tax rate to provide additional law enforcement officials. 12. The Town could instruct the Administrative Assistant to respond to citizen complaints about law enforcement officials. ALTERNATIVE SELECTION The Town chooses alternatives two, three, four, six, eight, ten, and twelve. Implementation policies for each of these follows. _30- OBJECTIVE 1: IMPROVE AND MAINTAIN QUALITY OF STREETS AND SIDEWALKS Throughout the survey, street paving and maintenance, and lack of sidewalks on Highway 64, were said to be the most serious problems currently in Manteo. Fifty-one percent said street paving and maintenance is a serious or very serious problem. Fifty-six percent feel lack of sidewalks on Highway 64 is a serious or very serious problem. There is also a problem with sidewalks downtown, which are quite narrow in some areas and cause a pro- blem for people to pass. These problems are critical now, and ,must be dealt with regardless of Quadricentennial plans. IMPLEMENTATIONPOLICIES A. Inventory-of Streets and Sidewalks: An inventory of existing streets and sidewalk conditions will be done and recommendations presented to.the Town Board for maintenance and improvement consistent with Quadricentennial plans.and resident population growth projections. B. Priorities: Highest priority in street and sidewalk con- struction will be given to the low-income California neighbor- hood just west of-Highway 64/264. Sir Walter Raleigh and Fernando Street extensions require the most immediate street Mrovements C. Si ewalks on Highway 64: The Town, in conjunction with the State Department of Transportation, will continue to build sidewalks along Highway 64 to establish access from com- mercial establishments such as the grocery stores to neigh- borhoods adjacent to Highway 64. D. Street Trees: The Town Tree Board will inventory existing reet tree conditions and make recommendations consistent with citizen preference, Quadricentennial plans and state guidelines for maintenance. This will be done during i981. OBJECTIVE 2: PROVIDE LOW INCOME HOUSING Efforts should continue to upgrade the lives of Manteo's low income residents.. Forty-eight percent of-those surveyed found low income housingavailability to be a serious or very serious problem. Housing conditions for many lower income towns- people are substandard. Although the average income in the area is higher than other eastern North Carolina counties, Dare .County's poor are just as poor as people around the State. There- fore, compared to the average residents, Manteols lower income residents are relatively worse off. As..Manteo makes improvements to the Town for visitors, an attempt must be made@to help low income residents improve their living conditions. -31- IMPLEMENTATION POLICIES A. Community Development Block Grant: The Town will continue- efforts to obtain HUD assistance for housing rehabilitation in the California area through applications for Community Development Block Grant Funds' *Small Cities Program. B. Neighborhood Association: The Town Administrative Assistant will aid the California community in developing a viable neighborhood association that can initiate self-help projects. External donations will be sought in a "fix-up, paint-up" campaign keyed to the Quadricentennial. C. Self-Help.Projects: The Town will encourage self-help pro-- Jects to inexpensively improve poor housing. If the Town is unsuccessful in obtaining HUD.assistance in 1982, a local' community development program similar to the Federal program but more dependent on Self help, will be established by the Town Board to begin repairing housing during 1983 and 1984. The Town Board will organize a committee to raise funds for materials during each of those two years contingent upon 1 -citizens in service organizations, churches, and individual the California area providing the labor to repair their own or the housing of low-income elderly and handicapped home- owners. The details of this program will be established by the Town Administrative Assistant, the Building Inspector and a committee of,residents from California to be chosen in a neighborhood meeting. In addition, the Town Building Inspector will work with absentee landlords by providing technical assistance and enforcement of the State Code to get substandard houses occupied by renters brought up to standard. OBJECTIVE 3. INITIATE COMMUNITY DOG CONTROL POLICIES It is nice, in a small town, to be able to allow dogs to run free, but in Manteo this has become abit out of hand. Many of the.older residents have complained about being knocked down by dogs; some have even been knocked from their.bicycles. When asked about problems in their neighborhoods, residents cited dogs more than 10% of the time. A firm dog control policy.should be adopted to relieve this problem. IMPLEMENTATION POLICIES A. Public Information: The Town will initiate public information service efforts through a newspaper series on local animal shelters, school children protection needs, and existing Town animal control policies. B. Bad Dog: The Town will request that the local newspapers Zq_ve aa short continuing feature on "Bad Dog of the Month" to publicize chronic canine nuisances. OBJECTIVE 4. DEVELOP VOCATIONAL TRAINING OPPORTUNITIES Although nearly everyone has a job during the summer, ll%o of Dare County residents are unemployed in the wintertime. Of those -32- residents surveyed, 45%o called vocational training a serious or very serious problem. The development of a good vocational training program will be a way for residents to improve their qualifications for those jobs that are available year-round. IMPLEMENTATION POLICIES A. Vocational Training: The Town will encourage expansion of vocational training programs offered at the high school to include instruction in appropriate dress and speech for various job situations by writing letters to . +_ appropriate school officials.. Additional training would increase the opportunities for unskilled citizens to qualify for job advancement. B. Survey: Many lower income residents in Manteo may be unable to work because of problems other than vocational training. In 1982, the Town will conduct a survey to uncover additional needs, such as transportation to work, to establish what the major obstacles are to permanent employment for lower income residents. OBJECTIVE 5. MAKE USE OF EXISTING FACILITIES AND LOCAL COMMUNITY GROUPS TO MINIMIZE PUBLIC EXPENDITURES The current development plans for the Quadricentennial being discussed in Manteo are.extensive, and although the majority of the development cost will not fall on the Town, it is important that Manteo be conservative of public funds whenever possible. To insure this, reuse of existing facilities and developed areas must be encouraged. By keeping development clustered, Manteo can. avoid expansion of water and sewer lines, roads, utilities and other public services, thereby minimizing public expense and avoiding tax increases. Manteo Schools. In addition to utilizing Quadricentennial facilities for local reuse, the county schools in Manteo provide summer and evening use potential.. The Dare County Board of Education operates two public schools in Manteo, and is presently building A new high school facilityi Manteo Elementary: General Manteo High: General Information Informition -Size of site/9.3 acr es -Size of site/15.8 acres -Grades'housed/K-6 -Grades housed/7-12 -Year.built/1952-196?-18?5 -Year built/1958; additions in -Membership (19?5/?6)/5?2 196?, 19?4, and 1975 -Total permanent.teaching -Membership (10?5176)15?2 stations/24 -Total permanent teaching -Mobile units/1 stations/22 -1952, four-classroom -Mobile units/3 (temporary building) -Two steel buildings -33- Manteo Elementary (cont.) Manteo High (cont.) -Water supply system/municipal -Water supply system/municipal -Sewage disposal systeml -Sewage disposal system/ municipal. rpunicipal APPROXIMATE NO.. OF STUDENTS FACILITY.CAPACITIES Short- Med Urn I AREA Grades 1973-74 1976-77 1981-82 Range Range Long-Range Manteo Elementary K-5 540 695 648 902 814 814 and Kitty Hawk .MANTEO HIGH SCHOOL ATTENDANCE AREA 6-8 332 378 486 594 1 528 1484 Manteo High School 1 72@ 363 432 1 506 1 500 New. High School Manteo Schools: Facility Utilization Note: Capacity%figures @Lre based on 22 students per instructional space, they should be considered as approximate guidelines. With,construction,of the new high school facilities Manteo will have adequate school facilities for projected demand. Pro- jections made by the North Carolina Department of Education are based on increase in Dare County Birthrate (see Appendix.B), and immigration of grades. Average Daily Membershi-P/Grades K-12. 11075-1976 .1,988. 1979-1980 2,083 1980-1981 2,153 1984-1'985 2,386* *Proj ection by North Carolina Department of Education.. OBJECTIVE 6. EXPAND AND IMPROVE-HEALTH CARE FACILITIES A common problem among small towns is getting and keeping an acceptable level of health care. In the survey, 44% feel the lacklof health care facilities is a serious or very serious pro- blem; 39% feel the lack of doctors and dentists is a serious or very serious problem. IMPLEMENTATION POLICY Although the number of practicing physicians in the area.has steadily increased with the improvement of County health care services, many people still do not know what theirchoices of health care are. ..The Town will convey this information to health officials and urge them to undertake a program to inform residents of the range of existing health care facilities. -34- OBJECTIVE 7. IMPROVE THE QUALITY OF LAW OFFICIALS When asked about the most serious problem in Manteo, 10%o of those surveyed mentioned the quality of law officials. Although the survey questions did not elicit the details of this problem, careful attention must be paid to these concerns. IMPLEMENTATION POLICY Manteols Town officials encourage citizen input in all stages of planning and decision making. Any citizens with specific pro- blems in the area of law enforcement are encouraged to make these problems known to town leaders. OBJECTIVE 8. MINIMIZE DAMAGE FROM HURRICANES AND FLOODS As in most coastal communities, Manteo is ever mindful of the damage possible from hurricanes and flooding. It has taken steps to minimize that loss by providing-urban 'services outside the flood prone areas and encouraging cluster development in the Town. The Town will request that local newspapers run a series of articles yearly, in off-tourist season, informing area residents of hurricane damage prevention measures. IMPLEMENTATION POLICIES A. National Flood Insurance Standards: In those areas that are subject to flooding, primarily in the downtown district, strict adherence to the provisions for National Flood Insurance will be followed. B. Hurricane Evacuation Plan: In an effort to minimize the chance of loss of life, The Town will display the County Hurricane Evacuation Plan in Town Hall. 'OBJECTIVE 9. DEVELOP ALTERNATIVE ENERGY SOURCES Many citizens in Manteo complain of the high cost of utilities @and frequently disrupted service. Becaus.e oflocation, residents of Manteo can effectively use solar energy for heating, and wind for cooling and power production. IMPLEMENTATION POLICIES A. Information: The Town will display various pamphlets empha- sizing low-cost techniques for energy conservation in Town Hall. B. 1 85 Review: At the Five-Year.Review, the Planning Board will address the long-term alternatives for energy production and use in the area. C. Conventional Energy Producing Plants: It will be the policy, of the Town to not allow location of nuclear or electric generator plants within the existing corporatelimits. IV. GOAL FOUR: CELEBRATE THE QUADRICENTENNIAL OF THE FIRST ROANOKE COLONIES IN MANTEO GOAL FOUR CELEBRATE@THE QUADRICENTENNIAL OF THE FIRST ROANOKE COLONIES IN MANTEO DISCUSSION OF ALTERNATIVES One of the important challenges facing the Town of Manteo is to determine an appropriate and affordable means to celebrate the Quadricentennial of the Roanoke Colonies. Scores of pro- posals were made by townspeople and individuals all over the county. The alternatives that were most thoroughly discussed include the following: 1. The Town could encourage America's Four Hundredth Anniversary Committee to-build and dock the replica of a Roanoke Voyage Ship, The Elizabeth II, in Manteo. 2. The Town could host key historical commemorations like the celebration of the first voyage's arrival on Roanoke Island and the birth of Virginia Dare. The Town could cooperate with the Department of Cultural Resources in establishing an annual Anglo-American folk.. festival.in Manteo. 4.@ The Town could participate in building a replica of an Elizabethan Village. 5. The' Town c.ould.be transformed into an Elizabethan'theme village. 6. The Disney World-type boat trip based in Manteo, could be developed. ALTERNATIVE SELECTION The Town chooses alternatives one, two, and three. OBJECTIVE 1: BUILD AND DOCK THE "ELIZABETH III' IN MANTEO A permanent monument to,the lost colony is important to townspeople as an expression of their strong ties to the mystery and legacy of their island. Eighty-seven percent of the,residents surveyed want to see the "Elizabeth III' built and docked in Manteo. The "Elizabeth III' will also be important as a major visitor attraction, establishing the annual tourist trade which is vital to Manteols economy. It is projected that 100,000 additional visitors will be attracted to Manteols-waterfront each year that the ship is being built and docked there. This -36- translates into nearly twice the economic benefits that the downtown contributes to the Town in tourist business presently. This type of tourism is consistent with the towns people's desire to attract visitors who have historic and educational, rather than diversionary and/or thrill-seeking interests. The number of visitors anticipated is also consistent with the townspeople's desire to share their history with tourists but not be overrun by them. For these reasons the docking of the "Elizabeth II," with the development of a living waterfront to tell the history, is embraced by Manteo's r esidents as an appropriate way both to celebrate the Quadricentennial and to continuously tell the story of Roanoke Island. IMPLEMENTATION POLICIES A. Construction: America's Four Hundredth Anniversary Committee will raise construction funds and build the ship in Manteo. The Town will acquire the Creef-Davis boat building site in 1981 and make that site available for the construction of the ship. B. Location: Because 400 years ago Fort Raleigh was near the present location of Manteo and today Manteo has the facilities, the harbor, the need, and the will necessary to house the commemoration, it is a logical site to dock the "Elizabeth II.11 The:planning team has developed priority sites for docking the ship and will work with the.Committee if the members choose to locate the ship in Manteo. C. Waterfront: The waterfront will be refurbished by the Town of Manteo during 1981 toprepare an appropriate setting for the "Elizabeth II.1' OBJECTIVE 2: OBSERVE KEY HISTORICAL EVENTS THROUGH DISTINGUISHED CEREMONIES Residents of Manteo and Roanoke island are proud of their connection to Sir Walter Raleighl.s first American colonists. They consider themselves the spiritual children of the lost colony. Eighty-nine percent of the residents surveyed support holding commemorative events in Manteo, and 33% favor historically related activities such as learning history by involvement-, historic reinactments, and a cultural arts festival. These events will attract thousands of visitors and national media .attention, providing an excellent opportunity for local people to share their Island's important past and to extend an invitation to come and experience first hand that history. -3? The direct economic benefits of these ceremonies will not be insignificant (see A Quadricentennial Economic Analysis), but the primary contributions to the Town will be symbolic and long-term financial gain derived from the media exposure. The direct benefits county-wide will be more important, with the primary beneficiaries being hotels, restaurants and service stores. IMPLEMENTATION POLICIES A. Events: America's 400th Anniversary Committee has plans for a celebration on July 13, 1984, marking the 400th anniversary of the landing of the first colonists on Roanoke Island. During this ceremony, the "Elizabeth II" will be launched. Another celebration is planned for August 18, 198? marking the 400th anniversary of the birth of Virginia Dare. Smaller ceremonies will take place on significant dates between these two international celebrations. B. Location: The Town of Manteo will develop a plan to provide facilities for the various events by 1982. C. Coordination: The facilities will be prepared jointly by the Town, County, State, Federal and private groups. There will be an emphasis on using existing facilities and open spaces. OBJECTIVE 3: ESTABLISH AN ANNUAL ANGLO-AMERICAN FOLK FESTIVAL IN MANTEO Although responses to how the Quadricentennial should be celebrated are diverse, they-center around the areas of history, folk culture, and connections with England. Suggestions by townspeople include: music, dance, cultural arts festival,,and parades. North Carolina is rich in its Anglo-American heritage. In the outer banks, that heritage is very much alive, making the Anglo-American Folk Festival a natural means of celebrating the Quadricentennial. Aside from the economic benefits (see Quadricentennial Economic Analysis), an annual Anglo-American Folk Festival will attract visitors who are sensitive to, interested in, and respect- ful of the history and recent culture of Roanoke Island. IMPLEMENTATION POLICIES A. Cooperation: Manteo will cooperate with the State Department of Cultural Resources in the planning and staging of these festivals. The Town will provide contacts with appropriate local folk performers and craftsmen and will locate suitable sites for the events. B. New Commemorative Property: The Town will try to acquire the 20 acres of high land across Dough's Creek in commemoration of the Quadricentennial. This property will provide an ideal location for the festivals. V. GOAL FIVE: DEVELOP A MORE ECONOMICALLY VIABLE COMMUNITY GOAL FIVE DEVELOP A MORE ECONOMICALLY VIABLE COMMUWI1Y DISCUSSION OF ALTERNATIVES The realistic alternatives for Manteo to develop a more economically viable community are limited. It is largely dependent on governmental services.and historically based tourism which preclude many other finance generating functions. .The following alternatives were considered: 1. The Town could provide job opportunities through public funded projects for the four hundredth anniversary celebration And new commercial development accompanying it.. 2. The Town could guarantee the availability of commercial and mixed use sites through zoning and the provision of urban services. 3. The Town could recruit a heavy industry to the downtown area. 4. The Town could recruit the relocation of the Christmas Shop. to downtown. .5., The Town could stabilize the tax base by working with the County Commissioners to change the means of appropriating' sales tax revenues. 6. The Town can recruit small industries and specialty shops consistent with the character of the waterfront to the down- town area. ALTERNATIVE SELECTION The Town chooses alternatives one, two, five and six. A discussion of each follows. OBJECTIVE.l. PROVIDE OPPORTUNITIES FOR MORE JOBS THROUGH INCREASED COMMERCIAL DEVELOPMENT As mentioned above, Dare County has one of the State's., highest winter unemployment rates. The need for new industry and.more job opportunities was rated as a serious or very serious of problem by 44o those surveyed. Seventy percent felt it was at, least a somewhat serious problem. Through its increased commitment to visitor traffic, Manteo.has the opportunity to attract some new commercial development'which will create more jobs for Manteo residents. Furthermore, the development which occurs in con- nection with the Quadricentennial celebration should be done by local labor to the extent possible.. _39- IMPLEMENTATION POLICIES A. Commercial Development: As development of public funded pro- jects proceeds in anticipation of 400th Anniversary celebrat- ions, commercial development will follow. The Town of Manteo will recruit these new establishments by distributing literature about upcoming events and new development,to prospective industries and businesses as well as prospective visitors. Each new business will be advised of the need for year round jobs and.encouraged to hire local people for those jobs. B. Governor's Award: To show its commitment to economic re- covery, the Town of Manteo will pursue the Governor's Award for a Community of Excellence. This will bring the attention of possible investors in Manteols future. C. Commercial Sites: The Town will guarantee the availability ..of commercial and mixed use sites, both downtown and on Highway 64 through zoning. D. Urban Services: The Town will encourage development of new businesses by providing water and sewer both downtown and on, Highway 64 within the Town limits. OB.JECTIVE 2: STABILIZE AND DIVERSIFY THE LOCAL TAX BASE Although it seems that tourism is the answer to many of Manteo's economic and community service problems, it is important that the Town not become totally dependent on tourism. At the same time the Town prepares to expand its tourist tax base, :.efforts should be made to correct previous inequities in the tax .@.:syst,em and diversify the economy. Small industries compatible waterfront development and specialized educational facilities in town, as well as projects like the Wanchese Seafood .Processes Park can diversify the economy. The T'own will benefit in the long run from an economy not totally dependent upon ,.tourism. This is especially true for low income, poorly trained individuals who presently have only seasonal work during the tourist months. The Wanchese Industrial Park estimates employ- ment of 500 people by 1984-85, which will help lower winter unemployment figures in the area. The existing local labor force is expected to fill most of the 500 positions, IMPLEMENTATION POLICIES A. Sales Tax Allocations: The Town Board will work with the County Commissioners to change the means of appropriating sales tax revenues. Theprinciple concern for.stabilizing thelocal tax.base of Manteo is the existing inequity in the way sales tax revenues are distributed at the local level. Presently these monies are allocated to, each town on property tax value instead of population. Having the largest municipal population and being relatively -40- the poorest town in Dare County (in terms of personal income and property values), Manteo receives the smallest amount when its needs are the greatest. B. Small Industries: To diversify the economy in town, the Town will advertise, in the program for the Lost Colony and news- papers, in 1982 to attract small industries that are com- patible with the waterfront development. Industries such as those producing local crafts, products from local natural resources, aquaculture, boat building, furniture making as well as the arts, art education, professional offices, or educational retreat facilities will be considered appropriate. C. Available Building Sites: The Town will guarantee the availability of such sites by zoning, enhance downtown locations by public investments in the waterfront, and pro- vide water and sewer services to the sites. VI. GOAL SIX: PROVIDE RECREATIONAL OPPORTUNITIES FOR ALL. MANTEO RESIDENTS GOAL SIX PROVIDE RECREATIONAL OPPORTUNITIES FOR ALL MANTEO RESIDENTS DISCUSSION OF ALTERNATIVES Though close to recreational opportunities for tourists, Manteo has few public facilities available to townspeople. The following alternatives were considered: 1. The Town could locate a teen center in one of the facilities planned for the 400th Anniversary. 2. The Town could build a.separate teen center. 3. The Town could choose to let other community groups,be solely responsible for.recreation for teenagers. .4'. The Town.could provide technical assistance to groups. establishing a teen center. 5. The Town could build a new boardwalk with picnic, sitting, and passive.recreation facilities along the waterfront. 6. The Town could include in its plans for the Quadricentennial celebration the acquisition of the Ice Plant site and the provision of a public beach on that site. ALTERNATIVESELECTION .'The Town chooses alternatives one, four, five.and six.. A dis-' of e ..cussion ach follows. OBJECTIVE 1: PROVIDE A TEEN CENTER In discussions with Manteo residents,,the.need for a teen ..center comes up frequently. Eighty.percent of those surveyed wish to see a teen center.located somewhere in Manteo and 51% cited the lack ofa teen center as a serious or very serious problem. A teen center should be centrally located in Manteo to be.easily accessible to teenagers.from all over town. IMPLEMENTATION POLICIES A. Survey: A survey will be made.in 1981Ao determine the teen- agers'.own perceptions of their needs and their willingness to help operate a center. B. Shared Facilities: The Town Board will seek an appropriate facility built for the 400th Anniversary that. can also.serve as a teen center. C. Role of Town Administrative Assistant: The Town Administrative@ Assistant will work with local church, civic groups, an.d.teen-, agers to establish thecenter. OBJECTIVE 2. PROVIDE PARkS AND RECREATION FOR MANTEO RESIDENTS OF ALL AGES Parks and recreation needs are major obstacles to a healthy community in Manteo. As serious or very serious problems, 49% of those surveyed included parks and recreation for,teenagers, 48% included playgrounds for children, 42% included parks and recreation for adults, and 39%o included the need for picnic and sitting places. The time has come for Manteo to provide parks and recreation facilities for all local people. IMPLEMENTATION POLICIES A... Waterfront: The Heritage Conservation and Recreation Service has provided the Town a matching grant to build a boardwalk, increase picnic areas,.increase sitting areas, and provide more recreation spa'ce along the Manteo waterfront. These improvements will begin in 1981. B. Other parks: Residents of California would like torestore the old church at Lavada's Corner, located in the center of the California neighborhood,.to its original condition. To ..encourage their efforts, the Town will assist in locating potential funding sources for the project. OBJECTIVE 3. PROVIDE A BEACH OR OTHER WATER RELATED RECREATION ..AREA Despite Manteol.s, strong connection with-the water? and the water'a direct, impact on,people's lives, there'is no place' for ......water,recreation in Manteo except between the boatsalong the waterfront. :Fifty-five percent of those.responding in the survey said they.would like to have such facilities in Manteo. Water related recr,eation'could also be used as an added visitor .,.attraction, and provide another opportunity for peaceful contact between Visitors and townspeople. If a beach is developed, it is ess,ential. that the.pollution in Shallowbag Bay be reduced and controlled. IMPLEMENTATION POLICIES A. Acquisition: The Town will seek to acquirethe dredge spoil land across Dough's Creek for the Quadricentennial Celebration and for continuinglong-term recreation. @B. Plans: The Town. will include a beach.in. the design of this property for use by both residents and visitors. LAND CLASSIFICATION -43- LAND CLASSIFICATION -PURPOSE The land classification map is a graphic illustration of the Town's adopted implementation policies providing a visual guide for future land uses and those areas where natural and cultural resources will be preserved. The map is not a regulatory mechanism but will be a guide in making zoning and other land use decisions. Both the policy statement and,land classification map should be used in making implementation decisions. LAND CLASSES Within the Town of Manteols jurisdiction there are onlythree land classifications: developed, conservation, and a small transition area. In the area of critical importance to the Town, outside Manteols jurisdiction, are additional areas of trans- ...itipn, community, rural residential, rural production and con- servation. These latter areas are mapped for the following reasons: one, they reflect the stated policies of the Town. Two,.these areas directly affect Manteo's development. Three, the natural and cultural resources influencing Manteo are in, cluded therein., Four, the-north end of the island is the only logical ecological unit of data gathering when planning for. Manteo.: Five,--- these areas would be included in Manteols planning area if it were granted extraterritorial jurisdiction. Six, the Town has planned these in greater detail than is possible under, the county-wide plan. DEVELOPED The purpose of the developed class is to provide for c.on- tinued intensive development and redevelopment of existing urban. areas in Manteo. With the completion of the water and sewer extensions following annexation, almost all of the area within the:Town of Manteo is suitable for intensive development or re- development. The overall density of the Town is approx I imately 800 dwelling units per square mile with water, sewer, police and fire protection, and some recreational facilities. This is well in excess of the minimums for the developed class but still low enough that the entire anticipated population growth of 45 new families can be accommodated by infilling within existing residential and mixed use areas at a density acceptable to the Town. _44- The developed area of Manteo is.presently residential, commercial, and mixed use. These uses will continue and be en- hanced in accordance with the implementation policies included herein. The intention is to cluster urban development and pre- vent sprawling suburban'development requiring urban services. TRANSITION The purpose of the transition clas.s-is to provide for future intensive urban development within the ensuing ten years on lands that are most suitable and that will be scheduled for provision of necessary public utilities and services.: Within the Town, limits is one parcel of land designated transition, the future site of.the high.school. The Town has provided..urban services and within the ten year planning period this parcel will be, developed intensively. The Ice Plant Site across Dough's Creek, under the County's jurisdiction, is suggested to be classified transition. The@ 20 acres of high land may,then be developed for public use as, part of.the Quadricentennial Celebration and to provide beach access. The Town.would,provide those urban services necess.aryfor the. pub"lic.cele,bration but in no case would private development be ...allbwed,to occur because of the island's proximity to wetlands. No other transition land is needed during the planning period and the Town of Manteo does not intend to extend urban servic'es to other areas@ COMMUNITY _The purpose of the community class is,.,to provide, clustered.. land development@to help meet housing, shopping, employment, and publ ic service needs within the rural areas surrounding Manteo. There. are. several areas outside the Town limits in the Countyls 'jurisdiction that provide clusters of.housing, public services, and' tourist-oriented businesses. Some are mixed uses but most ...are not., In some cases theseare residential areas adjacent to Town.at densities that are neither urban nor rural. During the planning.,period the Town expects that no urban services will be extended, to these, areas. Care must be exercised to prevent the density in these areas from rising to the level of requiring urban services to rectify problems. -45- RURAL RESIDENTIAL The purpose of the rural residential class is to provide for low intensity residential or recreational use. These are areas where urban services are not required and where natural resources will not be significantly impaired. Much of the north end of Roanoke Island is low density residential interspersed within forested areas. These lands are"valuable for forestry and also constitute an irreplaceable scenic resource along Highway 64 from the bridge over the Croatan Sound to Mant6o. Since these lands are important to the experience of Fort Raleigh, will not receive urban services, and are well suited for dispersed residentiali forest ry, farming, and low intensity recreation, the Town will urge the County to protect these lands by classifying them rural. residential. Under no circumstances should higher density residential or additional commercial development be allowed. The scenic corridor'should be preserved.. RURAL PRODUCTION The purpose of the rural produation class is to provide for. agriculture, forest management, or other suitable low intensity uses that will not need urban services or significantly impact natural resources. These are areas, also under the County's jurisdiction, that are almost exclusively forested. They con- stitute an irreplaceable scenic resource along Highway 64 import- ant to the experience of Fort Raleigh. These areas,will not receive urban services and are well.suited for forestry,, farming and low intensity recreation. It is proposed that these areas be designated rural production, that no high intensity development be/allowe Id herein, and that the scenic corridor be preserved. In some cases low density residential will be appropriate. CONSERVATION This classification is established to provide for effective, long-term management of significant limited and irreplaceable areas.. It is to protect the Areas of Environmental Concern and to delineate areas of public benefit where certain public uses may take.place in accordance with the policies previously stated. in the Town limits are several wetlands, Shallowbag Bay,and Dough.'s.Creek. No high density development is appropriate. No .46- additional bulkheading, creation of navigation channels, piers, docks, boat ramps, marinas and wharfs, except those planned and described herein or those'deemed to have no significant adverse impact on estuarine resources by CAMA staff, will be allowed during,the planning period. Outside the Town's jurisdiction are also wetlands, shore- lands that are hazardous for development, wildlife habitats, a unique Carolina Bay formation, irreplaceable archeological sites, and water bodies. that are important to the Town. Hopefully, they will be classified Conservation by the C'ounty. 47 STATE LICENSES AND PERMITS Agency Licenses and Permits Department of Natural Resources -Permits to -discharge to surface and Community Development waters or operate waste water Division of Environmental treatment plants or oil dis- Management charge permits; NPDES Permits, (G.S. 143-215) -Permits for septic tanks with a capacity over 3000 gallons/ day (G.S. 0143-215-3) -Permits for withdrawal of sur- face 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 complex 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 -Permits to. dredge and/or fill community Development in estuarine waters, tidelands,, Division of Coastal Management etc. (G.S. 113-229) -Permits to undertake develop-.. ment in Areas of Environmental Concern(G.S. 113A-118) NOTE: Minor development per mits are issued by the local government Department of Natural Resources -Permits to alter or construct a and Community Development dam (G.S., 143-215.66) Division of Earth Resources -Permits to mine (G.S. 74-51) -Permits to drill an exploratory oil or gas well (G.S. 113-39l) -Permits to conduct geographical exploration(G.S. 113-391). -Sedimentation erosion-control plans for any land disturbing. activity of over one contiguous area (G.S. 113A-54 @48- Department of Natural Resources -Permits to construct an oil and Community Development refinery Secretary of NRCD Department of Administration -Easements to fill 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) "49- FEDERAL LICENSES AND PERMITS Agency Licenses and Permits Army Corps of Engineers -Permits required under Sections (Department of Defense)' 9 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 19?2 -Permits required under Section 404 of the Federal Water Pollution Control Act of 1972; 'ts to undertake dredging permi and/or filling activities Coast Guard -Permits for bridges, causewayst .(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 *do rights-of-way corri r Nuclear Regulatory Commission -Licenses for siting, construct- ion and operation of nuclear power plants; required under the Atomic.Energy Act of 1954 and Title II of the Energy ReorganizationAct of 19?4 Federal Energy-Regulatory -Permits for construction,:. Commission operation and maintenance of interstate pipeline facilities required under the Natural'Gas Act.of 1938 -Orders. of interconnection of electric transmission facilities under Section 202(b) of the Federal Power Act -50- -Permission required for, abandonment of natural gas pipelines and associated facilities under Section ?C(b) of the Natural Gas Act of 1938 -Licenses for non-federal hydro- electric projects and associated transmission lines under Sections 4 and 15 of the Federal Power Act APPENDIX A 1. Existing Land Use Map 2. Land Classification Map COMMERCIAL UTILITIES GOVERN MtHT/I NSTITUTIONAL FORESTED & FIELD .... .. ... .. . . . . . . Y. WETLANDS Manteo Em EXISTING LAND USE 1981, Manteo, North Carolina r' @Wfeet 0 ......... KEY: t DEVELOPED TRANSITION COMMUNITY RURAL RESIDENTIAL L RURAL PRODUCTION , J CONSERVATION . . . . . . . . . . Manteo 70-N TOWN LIMIT LIKE 15 0F5krNATFP Jby pAH THF T6Wm P065 NOT HONE MATp..TeKFtjTomjAL, JuRtspir-TiotA A140 THEREPORt LAKms E@EIOND 'THE C-IMPORA-175 LIMITS (TOWN WMIT LINE PIDOVE) Amr, ee,(0,4p IT-@ Flow-rIcAL- SCCIFE-T4E@ 74 THXT 71413 COUNT( C-ON51015F. THIS @LA551F%CATION FEn.Ak)SP- THMe LANDS t\RP L48"D -TO THE -T0V*j 5,( Jp0yIMI-rf AH,, 51MILAFI. L@D Q5m pjzps5URSG. LAND CLASSIFICATION 1981 Manteo, North Carolina 0 1000feet APPENDIX B PROFILE ON MANTEO AND DARE COUNTY Dare County and the Town of Manteo are growing significantly in population. Live births in Dare County have increased from 107 in 19?3 to 173 in 19?4. There are currently 49? housing units within the Town's corporate limits (Department of Commerce, Census Bureau for 1980), and the demand for new housing is ex- pected to increase steadily. Average per capita income for Manteo in 1977 was $4,903-00. The average per capita income for Dare County in 1979 was $6,599.00. Tourism, second home develop- ment,.and resulting support services have significantly affected M.anteo's growth, and are expected to increase.throughout the Qaudricentenn.ial Celebrations of 1984-1987. Appendix B is com- posed of excerpts from Economic Analysis, Public Report Four of a Plan for Manteo's Future Development. Refer to the above document for more detailed population and economic information. -54- WRIGHWr B HERS NATIONAL MEMORIAL 3000/day P. FORT-RA_LEIGH 3500/day w DOWNTOWN MANTEO 850/day. T--@IALLIGATOR RIVER BRIDGE CHRISTMAS SHOP 4000/day DARE COUNTY DAY VISITORS 10,000/day DARE COUNTY OVERNIGHT VISITORS 37500/day CAPE HATTERAS NATIONAL SEASHORE 11,000/day u Figure 3. Tourist visitation in Dare Co nty at peak ROT season, based on information from the National Park Service.; the North Carolina Department of Commerce, Travel and Tourism Division; and the local business community. -55- Since the area economy is primarily based on tourism, the labor force and employment rate fluctuate dramatically. In winter months the County has one of the state's highest unemployment .rates. In the summer, however, not only is unemployment the state's lowest, but large numbers of seasonal residents are also employed. Figure 2 shows the employment fluctuations since 1974., Local leaders hope that winter unemployment will continue to de- crease, as in the past five years, due to the recent completion of a large seafood industrial park at Wanchese, five miles south of Manteo. FIGURE 2 21 DARE_ COUNTY UNEWLOYMENT RATE 1974 1979 19 17 15 13-- % 9- 7- 5 3- IV 0 4 1. 1 Z' aa I. S. .6 ia 1974 1975 1976 1977 1978 1979 __j -5 The tremendous seasonal tourist trade ($120 million in 19?9) supports a wide variety of hotels, motels, restaurants,.retail outlets, and tourist attractions both public and private. The area includes about 50 motels or hotels totaling approximately .2000 rooms, the Town of Manteo hasIfive motels totaling about 200 rooms. Aside from the,ocean, Dare County contains a great number of added attractions, including Fort Raleigh National Historic Site, "The Lost Corony" outdoor drama, the Wright Brothers National Monument, and the Cape Hatteras National Seashore. These attractions draw nearly 50,000 daily visitors during peak season, and about 2.5 ,million visitors in a single season. Figure 3 shows visitationand location of various key attractions throughout the Outer Banks of Dare.County. This large visitation produces a thriving retailsales market which is expanding at nearly 20% annually. Table 3 indicates retail sales dollar values from 1969 to 19?9. This includes restaurant, hotel, motel and vacation cottage revenues. The 1981 tourist, expenditure's are likely to show a more marked increase due to legalization of by-the-drink liquor sales by public referendum in the Fall. of 1980.. TABLE3 Dare County Retail Sales Fiscal Year Retail Sales % Increase 1968-69 $20,783,047 --- 1969-70 $23,490,677 13.0 1970-71 $28,290,561 20.4 19711-72 $32,222.254 13.9 1972-73 $37,881,600 17.6 1973-74 $44,676,070 17.9 1974-76 $48,731,661 9.1 1975-76 $58,898,486 20.7 1976-77 $58,376,390 --- 16.1 1977-78 $81,248,887 18.8 1978-79 $97,425,336 19.9-- % INCREASE 1074-75-1978-79 99.9 Source: North Carolina Devartrnent of Revenue -57- However, while Dare County as a whole has prospered, the Town of Manteo has suffered. With the decline of aquatic trans- portation, the downtown waterfront began to lose its purpose as an area supply center. Bustling activity, once the waterfront's trademark, began to disperse. Businesses left downtown in favor of the highway or the beach. In.addition to loss of activity, Manteo's tax base has suf- fered. Because the town is located five miles from the ocean, tourist visitation, second homes, and tourist-related commercial development are less in Manteo than in the.beachfront communities of Nags Head, Kill Devil Hills, Kitty Hawk, and Southern Shores. Manteo, once the economic core of Dare County, has slipped to,3%, of the:County's total tax valuation. TOTAL TAX VALUATION 1950-1980 4W 350 300 @50 z .200 ISO 100 T, so C)AFtE OUN@ MANTE0 o 1950 1960 1970 1980 Figure,4. Total tax valuation Dare Countyand Manteo -58- REVENUE GENERATION One of the most visible problems in Manteo is a dying down-' town with about ten acres of under-utilized land. Long time residents have a sentimental attachment to the bustling-life of the waterfront. A rejuvenated downtown will provide only a slight improvement in community services, tax revenues and jobs. A fundai6ental community problem is the limitation of the municipal budget. Tax increase is not a practical way to deal with, this problem, since the tax rate is already $1.07 per $100.00 A question for the future, therefore, is how may the quadricentennial celebration help bolster the Town budget.without adding burden to taxpayers? MU14ICIPAL BUDGET' @Analysis.of the current municipal budget and general fund revenues provides insight into the reinforcement of that budget. Table 4:'shows a breakdown of the general fund revenues which may by qua.dricentennial.development. Ad-valorem (property) tax and sales tax are the most vital revenue sources, making up 60% of the general 'fund. 'Both these revenues will be modified .by any development that will attract additional tourists. More tourists.1n Manteo means more dollars spent.in.Town., TABLE 4 Town of Mantso, General Fund Revenues Fiscal Year 197"0 Amount % of Gen. Revenue4tam in Dollars __Eu -nd Bear and Wne tax 4,479.25 Local q2tion sales tax 44.049.56 ABC not revenues 3.085.18 1.3 Docking fees 1.239.00 0.5 Ad valorem taxes 96,289.61 41.7 Privilege to. 3,149.00 1.4 Other revenues 78,448.79 34.1 GENERAL FUNO TOTAL 230,740.39 100.0 CREDITS 1. The Manteo Board of Commissioners, The Planning and Zoning Board, The Manteo Town Hall Staff, and the Citizens who participated in surveys and planning discussions. 2. The School of Design, North Carolina State University, Claude E. McKinney, Dean. 3. John Crew, Land Use Planning Coordinator, Washington Regional Office, North Carolina Department of Natural Resources and Community Development. 4. Debbie Phillips, typist. 5. North Carolina State Department of Commerce, Board of Education, Economic Development, Cultural Resources, Natural Resources and Community Development, Transportation, Wildlife Resources Commission, Land Resources Division, and Depart- ment of Revenue. 6. Dare County Land and Water Conservation District. 7. Dare County Board of Education. INDEX Agriculture, small scale . . . . . . . . . . . . . . o 21 Annexation . . . . . . . . . . . . . . . . . . . . . . . 19 Automobile impact . . . . . . . . . . . . . . . . . . 13, 14 Beach . . . . . . . . . . . . . . . . . . . . . . . . . 42 Bicycles . .. . . . . . . . . . . . . . . . . . . . . . . 13 Boat ramp . . ... . . . . . . . . . . . . 0 . . . . . . 11 Business association . . . . . . . . . . . .. . . . . . ' 7 Business recruiting . . . . .... . . . . . . . . . . 7, 39, 40 Citizen participation . . . . . . . . . . . . . . . . . 15 Cluster development . . . . . . . . . . . . . . . . o 14, 44 Coastal wetlands . . . . . . . . . . . . . . . ... . . . 23 Community development-program . . . . . . . . . . . . . 1? Community facilities . . . . . . . . . . . . . . . . . . 11 Community ,self-help*projects . . . . . . . . . . . . . . Complex natural areas o . . . . . . . . . . . . . . . 2? Cultural resource areas . . . . . . . . . . . . . . . . 25 Density of development . . . . . . . . . . . . . . . . . 21 Development patterns . . . . . . . . . . . . . . . . . 27 Dog control . . . . . . . . . . . . . . . . . . . . . . 31 Economy . . . . . . . . . . . . . . . . . . . . . . . . @39 Education programs . . . . . . . . . . . . . . . . ... . 16 Elderly citizen involvement . . . . . . . . . . . . . . 15 Elizabeth II . . . . . . 6, 11, 35 Energy . . . . . . ... . 34 Estuarine shorelines . . . . . . . . 25 Estuarine water . . . . . . . . . . . 22 Existing land use map .@. % . . . . . . . . . . . . Appendix A Extraterritorial jurisdiction . . . . . . . . . . . . . 15, 27 Flood damage prevention . . . . . . . . . . . . . 33 Fragile natural areas, o . . . .. . . . . . 25 Handicapped . . . . . . . . . . . . . . . . . . 15 Hazard areas . . . . . . . 4 . . . . . . . . . . 1,1', 12, 28 Health care facilities . . . . . . . . . . . . . . . . . 33 Hurricane evacuation plan . . . . . . . . . . . . . . . 33 Industry . . . . . . . . 39 : : : 18, 43 Infill development patterns . . . . . . . Information services . . . . . . . . . . . . . . . . . 6 Inn downtown . . . . . . . . . . . . . . . . . . . . . . 7 Land classification . . . . . . . . . . ... . . 43 Lana classification map . . . . . . . . . . o . : : A'ppoendix A Law officials . . . . . . . . . . . . . . . . . . . o 33 Low income . . . . . . . . . . . . . . . . . . . . . . : 16, 30 Manteo 400 . . o . . . . . . . . . . . . . . . . . . . . 15 Marina . . . . . . . . . . . . . . . . . o . . . . . . . 11 Marshland . . . . . . . . . . . . . . . . . . . . . . 23, 27 Mineral production . . . . . . . . . . . . . . . . . . . 28 Minorities . . . . . . . . . . . . . . . . . . . . . . 16 National Flood-insurance . . . . . . . . . . . . . . . . 33 Natural resources . . . . . . . . . . . . . . . . . . . 21-28 Neighborhood association . . . . . . . . . . . . . . . . 31 Ocean outfall . . . . . . . . . . . . . . . . . . . . . 21 Parking . . . . . . . . . . . . . . . . . . . . . . . . 14 Parks , . . . . . . . . . . . . . . . . . . . . . . . . . 42 Population . . . . . . . . . . . . . . . . . . . . . . . .19 .Preservation commission . . . . . . . . . . . . . . . . 12 Prominant high point . . . . . . . . . . . . . . . . . . 28 Public participation . . . . . . . . . . . . . . . . . 4, 14 Public trust areas . . . . . . . . . . . . . . . . . . . 24@ Publicity . . . . . . . . . . . . . . . . . . . . . . . 6 Quadricentennial . . . . . . . . . . . . . . . . . . . . 35 Recreation . . . . . . . . . . . . . . . . . . . . . . . 42 Relic dune system . . . . . . . . . . . . . . . . . . . 28 Sales tax allocations . . . . . . . . . . . . . . . . . 39 School facilities . . . . . . . . . . . . . . . . . . . 32 Seasonal population . . . . . . . . . . . . . . . . 5, 19, 35 Sewer services . . . . . . . . . . . . . . . . . . . . 20 Sidewalks . . . . . . . . . . . . . . . . . 30 Signage . . . . . . . . . . . . . . . . . . 6 Soils . . . . . . . . . . . . . . . . . . . . . . . . . 20 State licenses and permits . . . . . . . . . . . . . 46 .Streets . . . . . . . . . . . . . . . . . . . 1@ '14, 30 Street trees . . . . . . . . . . . . . . . . . : : . .1. 30 Tax base . . . . . . . . . . . . . . . . . . . Appendix B 39 Teenagers . . . . . . . . . . . . . ... . . . 14: 41 .15, Tourism . . . . . . . . . . . . . . . . . . 5: @,* l?, 18 Urban growth patterns . . . . . . . . . . . . . . 14, 21, 27 Urban services . . . . . . . . . . . . . . . . . . 14, 39, 45 Vocational training . . . . . . . . . . . . . . . . . . 32 Wanchese harbor . . . . . . . . . . . . . . . . . . . . 39 Water services . . . . . . . . . . . . . . . . * . . . 20 Waterfront development . . . . . . . . . . . . 11, 351, 36, 42 Wildlife habitats . . . . . . . . . . . . . . . . . . . 27 Youth Center . . . . . . . . . . . . . . . . . . .. . . 41 Zoning . . . . . . . . . . . . . . . . . . 11, 12, 13, l?, 21 11 t" I 4 - 11IMMINIMIND 3 6668 14102 8920